BUREAU  FOR  SOCIAL  RESEARCH  OF 
THE  SEYBERT  INSTITUTION 


THE  SOCIAL 
SURVEY 


By 
CAROL  ARONOVICI,  PH.  D. 

DIRECTOR    OF  THE   BUREAU   FOR  SOCIAL   RESEARCH, 
PHILADELPHIA 


PHILADELPHIA: 

THE    HARPER    PRESS 
1012-20  CHANCELLOR  STREET 

MCMXVI 


' 


COPYRIGHT  1916 

BY 
HARPER  PRINTING  COMPANY 


HvIMED  IN  THE  UNITED  STATES 


PREFACE 

THIS  book  lays  no  claim  to  originality.  A  con- 
siderable share  of  what  is  here  presented  was 
published  in  pamphlet  form  as  Bulletin  No.  20 
of  the  Department  of  Social  and  Public  Service  of  the 
American  Unitarian  Association.  It  was  then  revised 
and  enlarged  before  its  publication  in  a  second  edition, 
and  was  subject  to  additional  changes  when  it  was 
published  as  a  series  of  magazine  and  newspaper 
articles. 

The  kind  reception  given  to  the  pamphlets  and 
articles  which  I  have  published  on  the  subject  of  sur- 
veys, and  the  widespread  use  that  has  been  made  of 
them  in  club  and  classroom  work,  throughout  this 
country,  and  in  some  instances  abroad,  prompt  me 
to  enlarge  the  scope  of  the  work  into  book  form,  in 
the  hope  of  recording  in  a  connected  and  relevant  way 
the  experience  gained  in  recent  years  in  the  field  of 
social  surveys. 

The  lines  of  inquiry  suggested  can  hardly  be  con- 
sidered as  sufficiently  detailed  to  cover  the  field  in  any 
of  the  subjects  discussed.  What  I  have  hoped  to  do, 
is  to  present  to  the  reader  broad  outlines  of  general 
investigation  in  the  expectation  that  those  undertaking 
a  social  survey  would  soon  become  conscious  of  the 
more  intricate  and  more  subtle  manifestations  of  social 
life  that  lend  themselves  to  analysis  and  measurement. 

A  guide  for  social  survey  work,  that  would  cover 
the  whole  field  of  surveys  and  include  a  discussion  of 
the  technique  required  for  an  efficient  collection,  classi- 
fication and  interpretation  of  social  facts,  is  beyond 
the  scope  of  this  book,  and  could  hardly  be  condensed 
into  one  work  unless  it  be  in  the  nature  of  a  sociological 
encyclopedia.  C.  A, 


TABLE   OF  CONTENTS 

PAGE 

THE  MEANING  OF  THE  SURVEY 1 

GENERAL  CONSIDERATIONS 6 

The  Survey  and  the  Science  of  Society 7 

Starting  a  Survey 9 

The    Point    of   View 12 

The  Scope  of  the   Survey 15 

Surveying   Forces 17 

Training  Surveying  Forces 19 

Preparing  the  Community  Mind 21 

Sources  of  Information 22 

(  IIAKACTKK  OF  THE  COMMUNITY 28 

Territory      /' 28 

Population-       31 

THE  CITY  PLAN 34 

The  Air       36 

Food    Supply 37 

Shelter 38 

The  Special  Amenities  of  Life 39 

Relation  of  City  Plan  to  Labor 39 

Relation  of  City  Plan  to  Leisure 40 

LOCAL  GOVERNMENT 44 

The    City    Budget 48 

Municipal   Improvements   and   Loans 49 

SUFFRAGE 55 

Americanization 56 

INDUSTRY 58 

Types  of  Industry 58 

Character  of  Workers  and  Compensation 61 

Steadiness  of  Employment 63 

v 


vi  TABLE  OF  CONTENTS 

PAGE 

Temporary  and  Side  Employment 64 

Protection  against  Unemployment 68 

Safety   in   Employment 69 

Welfare    Wlork      . 71 

Labor  Organizations  and  Labor  Problems 72 

HEALTH 76 

Mortality 76 

Morbidity 77 

Housing 80 

Conditions  of  Dwellings 81 

Environment  of  Dwelling  Houses 83 

Rooming  Houses 83 

General   Considerations 85 

Causes  of  the  Housing  Problem 88 

Governmental   Factors       91 

Housing  Factors       94 

Ownership  of  Homes 101 

Legislation        101 

Relation  of  Homes  to  the  Community 102 

Industrial   Sanitation 103 

School  Sanitation 105 

Sanitary    Control 107 

General  Questions 107 

Contagious   Diseases 107 

The  Food  Supply ,     .     .     .  108 

LEISURE 109 

Recreation 112 

Commercial  Recreational  Facilities 115 

Private  Non-Commercial  Recreational  Facilities     .     .116 

Cultural   and   Educational   Facilities 118 

The  Emotional  Aspects  of  Leisure 123 

Art 125 

Relation  of  Government  to  Leisure 128 

^EDUCATION 131 

The  School  and  the  Child 137 

Basic  Educational  Questions     .     .     .     .  ' 138 

Administration 139 


TABLE  OF  CONTENTS  vii 

PAGE 

School  Service  and  Community  Needs     .     .     .     .     .     .  139 

Efficiency 140 

Private  Educational  Agencies 142 

Educational   Status       143 

WELFARE  AGENCIES     . 145 

Poverty  and  Dependency 149 

Institutional  Equipment 155 

Efficiency  Tests  and  Control  of  Welfare  Agencies     .     .167 

/CRIME 175 

Juvenile  Delinquency 176 

Juvenile  Delinquency  and  Court  Procedure     ....  178 
Adult  Crime 180 

STATISTICAL  FACTS  AND  THE  SURVEY 184 

SOCIAL  LEGISLATION  AND  THE  SURVEY 189 

THE  FACTS  AND  THE  PEOPLE 194 

The  Report 197 

People's  Publicity 197 

Exhibits        199 

The  Public  Forum 200 

The  Public  Schools 201 

The  Civic  Pageant 202 

A  SOCIAL  PROGRAM 203 

APPENDIX   .     '. 209 

Sources  of  Information 209 

Social  Agencies  of  Xational  Scope 215 

Bibliography 217 

INDEX  .  253 


LIST  OF  ILLUSTRATIONS,  CHARTS,  ETC. 


PAGE 

Chart  Showing  Departmental  Organization  of  the  Depart- 
ment of  Finance  of  the  City  of  New  York  as  Contained 
in  the  1907  Charter  Revision  Commission's  Report  .  .11 

Chart  Showing  Departmental  Organization  of  the  Depart- 
ment of  Parks  of  the  City  of  New  York  as  Contained 
in  the  1907  Charter  Revision  Commission's  Report  .  .  16 

Diagram  from  How  Should  Public  Budgets  be  Made     .     .     26 
Distribution  of  Heights  of  Buildings 35 

Chart  Showing  Relations  Between  Wages  of  Fathers,  Pro- 
portion of  Working  Mothers  and  Deaths  of  Babies  per 
1000  Births 59 

Card  Used  by  the  Author  in  the  Study  of  Family  Budgets 
Employed  in  the  Study  of  2000  Wage  Earning  Fami- 
lies in  Rhode  Island 62 

Obverse  Part  of  Above  Card 66 

Chart  Showing  Percentage  of  Employed  in  Each  of  Nine 
Building  Industries  at  a  Time  When  Each  Industry 
Showed  the  Largest  Percentage  of  Unemployment  .  .  70 

Chart  Showing  Percentage  of  Men  in  Building  Trades  and 
in  the  Printing  Trades  Employed  Every  Month  During 
the  Year 74 

Cartoon — Baby's  Foes 79 

Surface   Drainage,   a   Menace   to   Health    Found    in   Most 

American    cities facing     80 

Housing  Card  for  Use  in  the  Recording  of  Facts  Relating 

to  the  Apartments  Occupied  by  Individual  Families     .     82 

Housing  Card  for  Use  in  the  Recording  of  Facts  Relating 
to  Conditions  Outside  of  the  Apartments  Occupied  by 
Families — Individual 84 

viii 


LIST  OF  ILLUSTRATIONS,  CHARTS,  ETC.  ix 

PAGE 

Homes  for  Pensioned  Workers  at  Essen,  Germany   .   facing     90 

Map  Showing  Block  Congestion  Prior  to  Block  Reconstruc- 
tion in  Liverpool 93 

Map  Showing  Block  Reconstruction  of  Congested  Area  in 

Liverpool 93 

Low  Cost  and  Artistic  Houses  Provided  by  the  Pennsylva- 
nia Railroad  for  Its  Employees  at  Enola,  Pa.,  Repair 
Plant facing  96 

Apartment  Houses  in  San  Francisco,  California     .     facing  112 

"A  Game,  a  Drama,  a  Ritual,  a  Social  Occasion;  a  Group 
of  Children  Passionately  Recalling  Out  of  the  Twi- 
light of  Consciousness  a  Communal  Dream,  Testing 
and  Transmitting  the  Only  Immortal  Life  of  Which 
We  Clearly  Know" facing  120 

Remarkable  Setting  for  Interior,  by  Maeterlinck,  Pro- 
duced by  the  Washington  Square  Players,  a  Group  of 

Amateurs facing  126 

Tenements,  Berlin,  Germany facing  128 

Chart  Showing  Actual  and  Desirable  Organization  of  the 
Administration  of  the  Schools  in  the  City  of  Philadel- 
phia   132 

Chart — The  Public  School  of  Tomorrow 135 

Chart  Showing  Comparative  Expenditures  for  Schools  Last 

Year  in  Montclair,  N.  J.,  and  Greenwich     ....       141 

A  School  Building  at  Altdorf,  Germany    ....     facing  144 

Chart  Used  by  the  Bureau  for  Social  Research,  Philadel- 
phia, in  the  Study  of  Family  Relationships,  and  Indi- 
vidual Characters  in  Dependency,  Delinquency  and 
Illegitimacy  Cases 154 

Chart  Showing  Distribution  of  Feebleminded  in  Massachu- 
setts Institutions,  Waiting  Admission  and  in  the  State  156 

Diagram   Showing  Progress  of  Unadjusted  Child  in  New 

York  City 177 

Plan  for  Medical  Examination  of  Prisoners  .     .  .181 


THE  SOCIAL  SURVEY 


THE  MEANING  OF  THE  SURVEY 

WITHIN  the  last  two  decades  there  has  been  a 
wide-spread  effort  on  the  part  of  social  workers, 
students  of  the  social  system,  public  spirited  citizens, 
statesmen  and  the  public  at  large  to  ascertain  the 
conditions  under  which  our  social  institutions  are 
operating,  and  to  determine  whether,  under  the  present 
state  of  our  knowledge  of  these  institutions,  we  are 
getting  full  value  for  the  state  and  the  individual. 

At  first  this  effort  was  sporadic,  and  tended  to 
startle  and  confuse,  rather  than  give  a  clear  vision  of 
the  existing  evils  and  stimulate  constructive  remedies. 
The  muckraker,  however,  had  his  share  in  the  now 
clearly  defined  task  of  ascertaining  in  their  minutest 
detail  the  factors  that  underlie  our  social  fabric  and  in 
providing  methods  and  machinery  for  a  more  scientific 
and  more  efficient  handling  of  the  numerous  social 
problems,  that  a  highly  organized,  increasingly  complex 
and  constantly  changing  democracy  brings  forth. 

The  social  survey  movement  in  this  country  repre- 
sents the  cumulative  result  of  the  growing  conscious- 
ness among  the  leaders  in  social,  industrial  and  govern- 
mental life  of  this  nation  of  the  need  for  a  clearing  of 
the  atmosphere,  and  an  intelligent  and  honest  facing 
of  the  facts  that  have  so  far  stood  in  the  way  of  a 
realization  of  the  highest  ideals  of  a  potentially  ideal 
democracy.  The  radicals  are  deploring  the  apparent 


2  THE  SOCIAL  SURVEY 

bankruptcy  of  American  institutions,  the  church  is 
fearful  of  a  decline  due  to  a  too  rapidly  changing  social 
and  economic  order,  while  capital  and  labor  are  wasting 
themselves  in  a  bitter  struggle  for  the  possession  of 
the  earnings  that  represent  the  difference  between 
the  marginal  line  of  subsistence  and  the  honest  returns 
of  the  fruits  of  the  worker's  labor. 

In  the  midst  of  this  turmoil  of  differing  opinions  and 
points  of  view,  looms  the  question  as  to  whether  society 
is  obtaining  a  fair  return  on  its  investment  in  human 
life  and  labor,  and  whether  applied  science,  which 
seems  to  be  the  dominant  achievement  of  this  age,  has 
been  called  upon  to  serve  the  machinery  of  society 
to  the  same  extent  that  it  has  been  called  upon  to  serve 
the  more  humble  tasks  of  human  productiori,  such  as 
the  making  of  cloth  or  the  perfecting  of  the  sixteen 
inch  gun. 

Social  workers  and  socially  minded  citizens  cannot 
fail  to  see  the  enormous  waste  of  human  life  and  energy 
that  is  daily  going  on  in  our  midst.  They  cannot  fail 
to  recognize  that  this  waste  is  not  merely  affecting  the 
individual,  but  that  the  loss  is  clearly  social  and  pro- 
ductive of  conditions  which  are  a  handicap  to  the 
attainment  of  the  high  achievement  that  this  democracy 
is  capable  of  attaining. 

It  is  this  growing  conviction  of  social  failure  that 
is  slowly  crystallizing  public  opinion  regarding  the 
dangers  of  the  wasteful  and  cruel  leakage  in  our  human 
resources.  Business  men  and  social  workers,  church- 
workers  and  statesmen,  university  professors  and  labor 
leaders  are  all  coming  to  agree  that  the  mistakes  and 
sins  of  our  industrial  life,  the  neglect  and  blind  self- 
interest  in  the  business  world,  and  our  ignorance  and 


THE  MEANING  OF  THE  SURVEY  3 

indifference  towards  the  machinery  that  has  to  do  with 
the  political  and  administrative  affairs  of  the  country, 
are  placing  a  heavy  burden  upon  human  life  and  human 
achievement,  and  are  wasting  invaluable  human  re- 
sources. This  is  quite  as  true  of  the  small  town  and 
village  community  as  it  is  of  the  vast  territory  of  the 
United  States. 

The  American  mind  is  eminently  practical  and 
measures  values  in  terms  of  concrete  returns.  While 
this  characteristic  has  led  to  momentous  advance  in 
the  business  world,  and  in  the  fields  of  science  and 
politics,  the  achievement  has  been  individual  rather 
than  social,  and  progress  has  been  largely  confined  to 
certain  classes,  without  materially  affecting  the  masses 
of  the  people. 

The  conservation  of  natural  resources  has  become 
an  established  principle  in  our  national  economy,  the 
possibilities  for  increased  industrial  efficiency  and 
productivity  without  increase  in  the  use  of  labor  are 
engaging  the  attention  of  the  business  world.  On  the 
other  hand  the  conservation  of  human  resources,  the 
increased  efficiency  of  community  life,  community 
production  and  community  development  are  still  in 
the  background  of  our  national  achievement.  The 
point  of  view  is  not  one  of  improvement  of  resources, 
but  of  use  increase,  not  one  of  co-ordinate  development 
but  individual  use  efficiency. 

The  advocates  of  conservation  of  national  resources 
injd  the  practical  managers  who  are  testing  the  efficien- 
cy limits  of  our  labor  and  machinery  are  rendering 
valuable  national  service,  but  their  work  is  of  the 
present;  it  is  largely  material,  and  aims  at  human 
achievement  with  the  human  element  left  out. 


4  THE  SOCIAL  SURVEY 

We  are  compelled  by  the  evidence  adduced  by 
recent  studies  of  society  to  disagree  with  Carlyle's 
dictum  that  "The  history  of  the  world  is  the  biography 
of  great  men/'  and  to  accept  the  more  recent  and  more 
scientific  principle  that  all  great  men  are  the  result 
of  opportunities  for  self-expression,  afforded  by  a  social 
state  for  which  \he  individual  is  responsible  only  in  so 
far  as  he  developed  his  powers  by  the  most  intensive  use 
of  the  opportunities  available  in  the  community. 

This  places  upon  society  a  responsibility  for  the 
human  resources  at  its  command,  for  the  efficient  and 
common  expression  and  utilization  of  which  it  should 
be  accountable.  Professor  Lester  F.  Ward  in  America 
and  Alfred  Odin  in  France  have  demonstrated  beyond 
the  shadow  of  a  doubt  that  genius  and  talent  are 
capable  of  achievement  only  where  opportunity  is 
greatest.  It  remains  for  this  democracy  to  provide 
equal  opportunities  for  all  in  such  infinite  variety  as 
to  call  into  the  service  of  society  every  vestige  of  the 
latent  power  that  now  lies  fallow  under  a  burden  of 
social  inequality  and  economic  inequity. 

To  accomplish  this  result,  we  must  know  the  facts. 
We  must  turn  from  the  field  of  speculation  to  the 
great  laboratories,  which  are  open  before  us  in  the 
midst  of  the  people.  We  must  gather  all  the  facts, 
without  bias,  without  haste  and  without  preconceived 
ideas.  When  the  facts  are  known,  and  the  good  is 
balanced  against  the  bad,  an  awakening  of  the  Amer- 
ican people  is  bound  to  result,  an  awakening  to  a  con- 
sciousness of  their  responsibility,  which  will  blast 
the  way  towards  improvements  of  a  constructive,  far 
reaching  and  permanent  character.  It  is  the  function 
of  the  social  survey  to  gather  these  facts  and  present 


THE  MEANING  OF  THE  SURVEY  5 

them  with  the  accuracy  and  impartiality  that  char- 
acterize the  findings  of  laboratory  methods  in  the  field 
of  biology,  physics  or  chemistry.  It  is  only  by  the 
development  of  a  scientific  technic  in  the  discovery; 
classification  and  interpretation  of  social  facts,  which 
would  be  akin  to  the  technic  developed  and  applied 
in  the  other  fields  of  human  knowledge  and  achieve- 
ment, that  we  shall  build  up  a  science  of  social  organi- 
zation and  function  such  as  may  serve  the  human  race 
as  a  guide  in  its  very  difficult  task  of  achieving  progress 
without  waste  and  utilizing  human  energy  without 
injustice. 

A  social  survey  may  therefore  be  defined  as  a  stock 
taking  of  social  factors  that  determine  the  conditions 
of  a  given  community,  whether  that  be  a  neighborhood, 
village,  city,  county,  state  or  nation,  with  a  view  to 
providing  adequate  information  necessary  for  the 
intelligent  planning  and  carrying  out  of  constructive 
and  far-reaching  social  reforms. 


GENERAL  CONSIDERATIONS 

THE  survey  idea  has  now  passed  all  the  usual  evolu- 
tionary stages  of  a  social  movement.  From  a 
clearly  denned  conception  in  the  mind  of  the  trained 
sociologist  and  devoted  social  reformer,  it  has  passed 
through  the  sporadic  efforts  of  a  few  scattered  individ- 
uals in  a  limited  number  of  communities  to  the  endemic 
condition  of  mind  that  precedes  all  well  balanced  con- 
structive social  work. 

The  overwhelmingly  rapid  growth  of  our  cities,  the 
concentration  of  one-third  of  the  population  of  the 
country  within  less  than  0.12  per  cent,  of  the  area  of 
this  country,  the  vast  influx  of  foreign  populational 
elements  due  to  immigration,  the  steady  migration  of 
industrial  establishments  from  the  larger  to  the  smaller 
populational  centers,  the  astoundingly  rapid  develop- 
ment of  industries  and  the  revolutionizing  of  the 
processes  of  production,  have  so  complicated  the  social 
and  economic  issues  of  this  country  as  to  necessitate 
accurate  scientific  study  and  measurement  where 
observation  and  personal  experience  were  once  suf- 
ficient. 

The  increase  in  the  business  activity  that  the  last 
two  decades  have  witnessed  and  the  scientific  methods 
of  production  and  management  that  have  become 
necessary  for  efficient  and  economic  production, 
have  had  a  very  salutary  effect  upon  social  service. 
In  the  maintenance  of  welfare  work,  the  financial 
burden  carried  by  big  business,  contributors  and 
managers  or  the  tax-paying  public,  has  stimulated  in- 

6 


GENERAL  CONSIDERATIONS  7 

terest  in  the  application  of  scientific  methods  to 
philanthropic  work,  which  promises  to  revolutionize 
not  alone  the  efficacy  of  the  service  rendered,  but  the 
entire  philosophy  of  charitable  giving,  from  one  of  in- 
dividual relief  to  one  of  prevention  and  necessary 
social  reconstruction. 

The  startling  revelation  of  the  Pittsburgh  Survey, 
the  discoveries  of  inefficiency  in  municipal  offices  made 
by  the  Bureau  of  Municipal  Research  of  New  York, 
the  shocking  political  situation  found  to  exist  in  San 
Francisco,  all  based  upon  facts  gathered  by  impartial 
and  trained  investigators,  have  been  so  rapid  and  so  ef- 
fective in  producing  results  that  scientific  investigation 
has  received  a  new  stimulus  and  a  constantly  widening 
support.  The  grafting  politician  is  taking  heed  of  the 
new  menace  that  scientific  diagnosis  of  social  and 
political  institutions  presents  to  inefficiency  and  dis- 
honesty, while  the  most  sceptical  of  citizens,  and  those 
who  had  almost  lost  confidence  in  democratic  insti- 
tutions, are  finding  a  new  stimulus  for  a  better  citizen- 
ship, and  a  wholehearted  confidence  in  the  future  of 
public  service. 

Improvement  of  the  means  of  transportation,  and 
the  more  even  distribution  of  industries  throughout 
the  country  due  to  the  rapid  exodus  of  the  industries 
from  the  highly  urbanized  to  the  smaller  and  less 
urbanized  communities  have  spread  the  interest  in 
and  need  for  social  surveys  to  the  more  remote  and 
less  populous  centers. 

THE  SURVEY  AND  THE  SCIENCE  OF  SOCIETY. 

Sociology  or  the  Science  of  Society  has  progressed 
slowly  and  has  so  far  remained  largely  a  field  of  abstract 


8  THE  SOCIAL  SURVEY 

speculation,  rather  than  of  positive  scientific  inquiry 
and  interpretation.  As  sociological  research  does  not 
lend  itself  easily  to  the  laboratory  method  both  because 
of  the  practical  difficulty  in  the  way  of  experiments 
with  aggregations  of  human  beings  and  because  much 
of  this  experimentation  is  dependent  upon  spans  of 
time  beyond  the  possibilities  of  the  laboratory  method, 
the  only  available  means  for  the  building  up  of  this 
science  on  the  basis  of  observed  facts  must  be  found 
in  the  study  of  history  and  the  minute  observation, 
measurement  and  interpretation  of  human  institutions, 
as  well  as  their  relation  to  the  individual  and  to  each 
other. 

The  study  of  history  is  inadequate  for  the  con- 
struction of  a  science  of  society  because  its  content 
depends  upon  the  knowledge,  point  of  view  and  in- 
fluences of  social  institutions  in  relation  to  the  times 
recorded  in  history,  while  society  is  a  dynamic  organism 
growing  constantly  more  complex,  more  heterogeneous 
and  more  highly  differentiated  in  its  functions.  The 
accumulation  of  the  facts  gathered  in  the  vast  and 
rapidly  increasing  motley  work  that  is  now  being  done 
and  the  technic  that  is  being  developed  in  the  selection, 
segregation,  measurement  and  interpretation  of  social 
facts  will  open  new  horizons  to  the  study  of  society, 
and  a  new  sociology  will  be  created  based  upon  facts 
gathered  and  measured  by  uniform  standards,  tested 
and  verified  by  a  skilfully  developed  scientific  technic. 
The  reaction  upon  the  whole  of  our  social  structure 
resulting  from  the  development  jpf  the  new  science  is 
bound  to  lift  the  veil  that  hangs  over  the  present 
blundering  institutions  and  develop  a  social  structure 
in  harmony  with  the  best  interest  of  the  individual 


STARTING  A  SURVEY  9 

in  his  relation  to  the  social  order  of  which  he  is  a  part. 
The  Russell  Sage  Foundation,  the  many  Bureaus  of 
Social  or  Municipal  Research  that  have  sprung  into 
being  throughout  the  country,  the  research  depart- 
ments of  the  more  progressive  universities,  like  Wis- 
consin, are  laying  the  foundation  for  a  great  positive 
science  of  society.  Governmental  agencies  and  educa- 
tional institutions,  large  industrial  establishments  and 
business  corporations  are  contributing  to  the  task  of 
accumulating  social  data  upon  which  to  base  social 
reforms,  and  the  old  institutions  are  tottering  under 
the  weight  of  evidence  which  is  bound  to  make  way 
for  a  new,  less  wasteful  and  more  equitable  social  order. 

STARTING  A  SURVEY. 

The  Federal  Government  of  the  United  States  has 
for  some  years  been  instrumental  in  the  carrying  out 
of  intensive  scientific  studies  of  social  and  economic 
problems  in  various  localities  or  throughout  the  country 
as  a  whole.  Much  of  the  information  gathered  is 
valuable,  and  at  rare  intervals  has  been  productive 
of  social  legislation  and  improvements.  These  extra- 
community  efforts,  however,  have  most  frequently 
resulted  merely  in  the  accumulation  of  well  sorted 
and  well  stored  facts,  fit  for  the  consumption  of  experts, 
but  indigestible,  although  easily  accessible  to  the 
general  public.  These  valuable  and  costly  social 
studies  or  surveys  have,  however,  fallen  far  short  of 
their  purpose  to  enlighten  public  opinion  and  facilitate 
public  action. 

The  most  effective  survey  work  that  has  so  far  beenL- 
done  in  this  country  has  been  initiated  through  the' 
communities  themselves,  even  though  they  were  due 


10  THE  SOCIAL  SURVEY 

to  outside  stimulus  and  were  carried  out  under  the 
supervision  and  direction  of  outside  experts. 

A  survey,  like  any  other  civic  activity  involving  a 
conscious  effort  on  the  part  of  a  group  of  citizens,  must 
be  started  by  some  particular  civic  or  philanthropic 
agency,  some  body  of  men  or  women  interested  in 
the  welfare  of  the  people  whose  intentions  cannot  be 
questioned  and  whose  integrity,  good  judgment,  moral 
and  political  standing  are  beyond  reproach.  Most 
small  cities  and  towns  have  a  Charity  Organization 
Society,  a  Young  Men's  Christian  Association,  a  Board 
of  Trade,  a  Business  Men's  Association,  a'  Grange,  a 
large  Women's  Club,  a  University  Club  or  some  other 
similar  organization  or  agency  which  is  backed  by 
prominent  men  or  women  or  both.  The  person  or 
persons  interested  in  making  a  survey  should  select 
the  most  prominent,  the  most  respected,  and  if  possible, 
the  best  financed  organization  in  the  community  to 
back  the  work.  The  main  conditions  to  be  observed 
in  selecting  the  organization  should  be  as  far  as  pos- 
sible a  complete  absence  of  sectarian  affiliations, 
political  color  or  special  industrial  or  public  service 
interests. 

When  the  organization  has  been  decided  upon,  a 
carefully  selected  special  committee  of  persons  from 
various  walks  of  life  should  be  appointed  with  instruc- 
tions to  plan  and  organize  the  survey  under  the  auspices 
of  that  organization.  This  committee  should  not  be 
so  large  as  to  be  unwieldy,  nor  so  small  as  to  be  in 
danger  of  being  one-sided  or  not  representative  of  the 
best  elements  in  the  organization.  A  committee  of 
ten  persons  in  localities  under  ten  thousand  population 
and  of  fifteen  to  twenty  in  localities  over  ten  thousand 


8  £ 

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12  THE  SOCIAL  SURVEY 

with   special   sub-committees   would   probably   prove 
most  efficient. 

In  larger  cities  a  permanent  Survey  or  Social  Re-, 
search  Bureau  is  desirable  if  it  can  be  organized  and 
maintained,  so  as  to  remove  all  possibilities  for  factional 
control  or  financial  restrictions.  Municipal  Bureaus 
are  valuable  and  desirable  assets  in  a  community, 
but  in  the  fields  in  which  political  influence  may  con- 
trol appropriations  in  order  to  throttle  the  revelation 
of  facts  detrimental  to  parties  or  special  interests,  an 
independent,  privately  maintained  research  agency 
is  preferable. 

While  the  technic  of  social  survey  work  or  social 
research  is  sufficiently  developed  to  render  possible 
the  accurate  study  of  social  phenomena,  the  general 
public  has  yet  much  to  learn  in  order  to  be  safeguarded 
against  pseudo-sociological  interpretation  to  which 
special  interests  frequently  have  recourse  for  their 
own  selfish  ends.  This  necessitates  a  check  and  balance 
system  of  research  agencies,  giving  to  the  public  agen- 
cy the  field  that  can  be  detached  from  private  interests, 
and  leaving  to  private  enterprise  the  work  that  under 
our  present  status  of  municipal  and  state  administra- 
tion, would  be  dangerous  to  entrust  to  official  depart- 
ments. 

THE  POINT  OF  VIEW. 

Where  a  well  organized  permanent  survey  agency 
exists,  or  where  experts  are  engaged  to  carry  out  a 
special  inquiry  or  a  general  study,  the  point  of  view 
may  be  safely  left  in  the  hands  of  those  who  have  been 
engaged  to  carry  out  the  work.  These  experts,  how- 
ever, should  not  be  considered  able  to  catch  the  spirit 


THE  POINT  OF  VIEW  13 

of  .a  community  in  which  they  are  only  temporarily 
stationed.  Every  assistance  should  be  given  to  them 
by  those  familiar  with  local  conditions,  but  advice 
should  not  be  imposed  upon  the  experienced  investi- 
gator, who  knows  his  sources  of  information  and 
possesses  the. necessary  skill  to  use  it. 

Where  a  survey  is  to  be  carried  out  by  local  and  not 
highly  specialized  workers,  who  do  not  possess  wide  . 
experience  and  special  training  in  this  field  of  endeavor,~-j~ 
the  local  community  should  decide  upon  the  scope  and  ! 
point  of  view  by  which  the  problems  to  be  studied 
should  be  approached. 

Whenever  possible,  the  advice  of  some  outside  expert 
familiar  with  the  method  of  investigating  conditions 
and  acquainted  with  the  problems  of  given  communities 
will  be  found  valuable,  and  will  prove  the  easiest  and 
surest  way  of  deciding  upon  the  point  of  view  from 
which  the  survey  is  to  be  approached.  If  such  an 
expert  is  not  available  the  local  social  workers  con- 
nected with  various  philanthropic  agencies  should  be 
consulted  as  a  group  and  their  suggestions  considered 
as  coming  from  persons  with  first  hand  information 
concerning  existing  conditions. 

In  deciding  upon  the  point  of  view  from  which  to 
approach  a  survey  it  is  important  to  recognize  in 
general,  several  conditions: 

1.  Is  the  community  ready  for  a  careful  consideration  of  its 
local  problem  or  problems  to  be  covered  by  the  survey? 

2.  In  what  way  are  the  schools,  the  churches,  the  press  and 
the  local  organizations  being  prepared  for  a  civic  revival  that  \ 
may  result  from  the  revelation  of  a  survey? 

3.  To  what  extent  may  the  governmental  agencies  be  depended  / 
upon  to  co-operate  in  the  gathering  of  the  facts  and  in  the  carry-  / 


14  THE  SOCIAL  SURVEY 

ing  out  of  the  recommendations  that  are  to  form  part  of  the 
survey  findings? 

4.  What  are  the  populational  groups  that  may  prove  most 
antagonistic  or  most  helpful  in  the  effective  carrying  out  of  the 
preliminary  work  of  the  survey  and  the  carrying  into  effect  of 
the  recommendations? 

5.  What  problem  or  problems  is  the  community  best  prepared 
to  face  at  the  time  of  the  survey,  and  what  would  be  the  best 
approach  to  such  a  problem,  that  would  pave  the  way  to  con- 
certed community  action  and  a  recognition  cf  the  survey  method 
as  an  efficient  means  of  social  improvement? 

6.  Can  the  local  press  be  depended  upon  to  serve  the  purpose 
of  the  survey  without  prejudice  and  without  the  application  of 
sensational  methods  which  are  effective  in  the  production  of 
marketable  headlines  instead  of  enlightened  public  opinion? 

These  are  questions  that  the  committee  must  ask 
itself  before  deciding  upon  the  point  of  view  from 
which  to  approach  its  work,  and  any  intelligent 
person  or  body  of  persons  sufficiently  interested  in  the 
community  to  act  as  a  survey  committee  should  be 
able  to  answer  these  questions.  If  the  community 
is  suffering  from  undue  and  pernicious  political  activity 
and  there  is  reason  to  believe  that  the  result  of  a  study 
of  the  administration  of  public  affairs  would  lead  to 
immediate  and  radical  changes  for  the  better,  it  is 
well  to  begin  the  work  from  that  end  and  work  up 
towards  the  general  social  problems  as  outlined  in 
this  bulletin.  If  the  social  problems  of  a  community 
are  more  promising  of  results  and  the  press  is  ready 
to  help  bring  the  facts  before  the  public  and  stand 
back  of  recommendations  that  might  logically  be  made 
after  the  facts  have  been  ascertained,  it  is  best  to  begin 
from  the  social  end.  If  the  community  is  aroused  to 
some  particular  evil,  which  has  not  yet  been  remedied 
and  which  depends  for  its  solution  upon  a  thorough 


SCOPE  OF  THE  SURVEY  15 

and  impartial  investigation,  by  all  means  the  survey 
should  begin  with  that  particular  problem. 

In  all  of  the  work,  however,  whether  it  is  undertaken 
in  order  to  bring  about  a  complete  change  in  the  com- 
munity life,  or  whether  it  is  to  deal  only  with  specific 
problems^xhe  committee  must  approach  its  task  with 
a  definite  understanding  that  the  work  is  to  be  done 
for  the  benefit  of  the  locality  without  the  sensationalism 
that  would  be  injurious  to  its  reputation  as  a  center 
of  population.  The  work  is  not  to  be  given  up  until 
definite  results  are  accomplished,  and  above  all  every 
available  social  force  in  the  community  should  be 
made  a  part  of  the  working  team  of  the  survey  so  that 
no  particular  body  of  men  or  women  may  take  the 
full  credit  for  the  results  accomplished.  } 

SCOPE  OF  THE  SURVEY. 

A  survey  should  cover  as  far  as  possible  every  phase 
of  community  life,  advantageous  and  disadvantageous, 
that  time  and  available  energy  can  secure,  but  if  a 
selection  of  specific  problems  is  made  either  for  the 
purpose  of  beginning  the  work  or  because  of  limitations 
of  time  and  working  force,  the  lines  of  investigation 
selected  should  be  practical,  should  have  in  view 
improvements  affecting  as  many  people  as  possible, 
should  be  easily  understood  by  the  masses  and  should 
be  measurable  in  commonly  accepted  quantities.  If 
the  supply  of  milk  is  bad,  an  investigation  into  the 
source  of  milk  and  the  passage  of  proper  regulations 
for  the  control  of  the  milk  supply  will  soon  show  results 
that  can  be  measured  in  terms  of  a  material  reduction 
in  the  infant  mortality  and  morbidity.  If  the  schools 
are  spending  large  amounts  of  money  with  meager 


SCOPE  OF  THE  SURVEY  17 

results,  an  investigation  into  the  accounting  system 
of  the  school  department,  a  study  of  the  physical  con- 
ditions of  the  children  and  visits  to  the  homes  of  back- 
ward and  truant  pupils  will  soon  reveal  the  cause  of 
the  inefficiency,  in  terms  which  can  be  easily  under- 
stood and  almost  as  easily  remedied. 

Whatever  the  scope  of  the  survey,  it  should  be 
definitely  outlined  at  the  beginning  both  as  to  char- 
acter, extent  and  intensity.  A  superficial  survey  is 
worse  than  useless  because  its  conclusions  are  bound 
to  be  unreliable  and  open  to  attack.  Intensive  work 
is  the  essential  of  effective  survey  work,  and  if  the 
scope  of  the  inquiry  is  to  be  determined  upon  the 
basis  of  the  relation  between  the  extent  of  the  field 
covered  and  the  intensive  concentration  of  effort  upon 
a  single  problem,  the  smaller  and  more  intensive 
study  should  be  selected.  A  survey  that  is  superficial, 
that  is  open  to  question  or  without  sufficient  backing 
as  to  facts  may  defeat  not  only  the  end  of  the  particular 
survey  in  question,  but  may  cast  doubt  upon  the  social 
survey  as  a  means  of  achieving  a  desired  social  end. 

Stated  in  brief,  a  survey  must  follow  lines  which 
are  of  a  practical  character,  must  be  based  upon  ample 
and  irrefutable  facts,  must  be  interpreted  in  the  light 
of  existing  social  conditions,  and  must  have  in  view 
tangible  improvements  which  are  easily  understood  and 
most  generally  desired. 

SURVEYING  FORCES. 

With  the  committee  on  Survey  appointed  and  the 
scope  of  the  work  to  be  undertaken  immediately 
decided  upon,  it  is  important  to  secure  the  cooperation 
of  intelligent  persons  in  the  community  who  by  the 


18  THE  SOCIAL  SURVEY 

nature  of  their  training,  knowledge  and  experience 
are  best  fitted  for  the  work.  It  is  quite  essential, 
moreover,  in  selecting  those  who  are  to  assist  in  the 
work  that  they  be  assigned  tasks  which  are  best  suited 
to  their  mental  equipment  and  interest. 

Social  workers,  physicians,  lawyers,  superintendents 
of  schools  and  teachers,  clergymen,  business  men  and 
mill  owners,  superintendents  of  mills,  labor  union 
leaders,  editors,  university  professors  and  students, 
officers  of  civic  and  philanthropic  agencies  are,  in 
general,  the  classes  of  people  most  likely  to  respond 
to  a  demand  for  assistance  in  this  sort  of  work. 

It  must  be  borne  in  mind  that  the  inclination  and 
mental  make-up  of  each  person  are  to  be  considered 
in  assigning  a  worker  to  any  particular  field  and  that 
only  persons  with  high  standing  in  the  community 
should  be  chosen.  This  latter  condition  is  so  im- 
portant that  a  single  mistake  in  choosing  workers  may 
impair  the  effectiveness  of  the  whole  enterprise. 

As  in  many  towns  and  cities,  colleges  and  univer- 
sities furnish  an  opportunity  for  increasing  the  field 
of  the  survey  through  the  assistance  of  students,  it 
is  important  to  sound  a  warning  against  indiscriminate 
use  of  student  work.  Eight  years  of  experience  have 
demonstrated  to  the  writer  that  only  the  most  mature 
students  are  capable  of  doing  accurate  and  reliable 
work  and  that  even  with  this  class  of  help  the  greatest 
care  and  the  largest  possible  amount '  of  supervision 
is  necessary. 

The  newspaper  editor,  who,  owing  to  his  probable 
knowledge  of  conditions,  familiarity  with  public 
opinion  and  the  methods  of  stimulating  it,  is  one  of 
the  most  valuable  members  of  an  investigating  body 


TRAINING  THE  SURVEYING  FORCES  19 

either  as  a  worker  or  as  a  member  of  the  survey  com- 
mittee, should  be  very  carefully  selected,  or  else  the 
temptation  to  publish  news  may  get  the  better  of  the 
interest  in  the  welfare  of  the  community,  and  in  survey 
work  an  ounce  of  discretion  is  frequently  worth  a  ton 
of  publicity. 

With  the  workers  selected  and  the  problems  to  be 
handled  decided  upon,  the  machinery  for  investigation 
is  ready  and  while  it  is  difficult  to  discuss  in  the  brief 
space  of  this  publication  the  problems  and  aspects 
to  be  considered  as  part  of -a  survey,  certain  definite 
lines  of  inquiry  may  be  safely  outlined,  leaving  the 
more  intricate  problems  and  investigations  to  the 
expert  "social  engineer"  whenever  his  assistance  can 
be  secured. 

TRAINING  SURVEYING  FORCES. 

Training  as  a  lawyer  or  teacher,  experience  as  a 
judge  or  a  superintendent  of  schools,  leadership  in 
politics,  industry  or  social  life  should  not  be  assumed 
as  being  adequate  for  the  handling  of  a  social  survey 
or  any  part  thereof.  The  selection,  collection,  classi- 
fication and  interpretation  of  social  facts  demand  a 
certain  amount  of  special  study  and  training,  which 
must  be  attained  by  familiarity  with  the  work  of 
others,  and  an  understanding  of  certain  fundamental 
principles  underlying  the  particular  problem  to  be 
dealt  with. 

It  is  hardly  conceivable  that  any  one  unfamiliar 
with  the  fundamental  principles  of  plumbing  and 
housing  sanitation,  even  though  belonging  to  the 
medical  profession,  would  be  qualified  to  study  and 
interpret  the  facts  relating  to  the  housing  conditions 


20  THE  SOCIAL  SURVEY 

of  a  community.  Similar  difficulties  may  be  encounter- 
ed by  the  successful  and  experienced  business  man 
in  the  analysis  of  the  administration  of  a  particular 
city  department,  or  the  relation  of  the  municipal  and 
state  tax  system  to  the  municipal  budget.  Many 
more  examples  of  similar  character  could  be  cited 
to  indicate  that  a  social  survey  is  a  job  of  itself  different 
from  other  callings,  and  that  wherever  and  whenever 
local  workers  must  be  employed,  their  preparation 
for  the  task  should  be  undertaken  with  the  utmost  care. 

A  large  number  of  books  and  pamphlets  have  been 
written  about  survey  methods  and  within  the  last 
ten  years  scores  of  excellent  surveys  have  been  con- 
ducted by  experts  and  laymen  in  the  field.  Many  of 
these  are  easily  accessible  in  a  library  of  any  size, 
and  many  are  obtainable  through  the  book  stores  or 
through  the  agencies  responsible  for  the  surveys.  At 
the  end  of  this  book  will  be  found  a  bibliography 
giving  the  books  most  valuable  in  the  preparatory 
training  for  survey  work,  and  a  list  of  what  the 
author  considers  the  best  surveys  that  have  been 
made  within  recent  years. 

While  it  is  frequently  advisable  to  take  advantage 
of  the  interest  awakened  in  the  community  in  favor 
of  a  survey  and  begin  work  at  the  earliest  possible 
moment,  the  present  awakening  of  the  social  con- 
sciousness towards  the  necessity  for  a  meeting  of 
social  facts  squarely  and  honestly  may  warrant  slight 
delay  in  the  actual  beginning  of  the  field  work,  in  order 
to  give  the  surveying  forces  an  opportunity  to  prepare 
for  the  task.  Universities  may  be  induced  to  introduce 
special  courses  intended  to  prepare  students  for  survey 
work,  and  these  courses  may  be  extended  into  the 


PREPARING  THE  COMMUNITY  MIND  21 

community  in  the  form  of  extension  lectures,  which 
have  become  so  common  in  recent  years. 

Clubs  and  classes  for  the  special  purpose  of  studying 
social  problems  and  analysing  the  surveys  of  other 
cities  may  be  organized  with  profit  to  both  those  who 
are  eventually  to  carry  out  the  survey,  and  to  those 
who  are  to  form  part  of  the  enlightened  general  public, 
whose  duty  it  will  be  to  carry  out  the  recommendations 
of  the  survey  on  the  basis  of  its  findings. 

PREPARING  THE  COMMUNITY  MIND. 

There  is  no  community  in  this  country  which  does 
not  have  its  social  and  civic  problems.  Many  of  them 
represent  serious  social  evils  which  demand  radical 
changes  in  the  organization  of  the  community,  while 
others  are  less  dangerous  and  relate  to  conditions 
which  are  only  relatively  objectionable  because  of  the 
very  high  standard  of  the  people  whom  they  affect, 
and  which  in  an  average  community  would  not  be 
considered  a  factor  worth  studying.  As  the  recognition 
of  many  of  the  existing  social  problems  depends  largely 
upon  the  personal  point  of  view  of  the  people,  it  is 
frequently  desirable  to  set  up  before  the  community 
a  high  and  uniform  standard  towards  which  it  should 
strive  and  which  has  been  attained  in  other  communi- 
ties. This  can  be  done  by  properly  directed  reading 
through  the  public  libraries  and  public  schools  and 
through  the  local  press.  The  most  effective  work, 
however,  along  this  line  can  be  done  by  exhibits  of 
conditions  that  can  be  attained  and  have  been  attained 
elsewhere.  These  exhibits  need  not  be  elaborate  affairs, 
heralded  by  the  blowing  of  trumpets  and  costly  display. 
They  can  be  made  into  simple  panels  easily  displayed 


22  THE  SOCIAL  SURVEY 

in  schools,  churches,  business  and  social  organizations, 
libraries,  museums,  art  galleries  and  social  centers, 
where  people  come  and  go  and  have  a  little  margin 
of  leisure  time  in  which  to  observe,  learn  and  think. 
If  housing  conditions  are  bad,  a  few  intelligently 
prepared  and  well  displayed  photographs  of  garden 
cities  or  model  villages  will  be  sufficient  to  arouse  inter- 
est and  discussion  and  awaken  organizations  that  may 
help  to  carry  a  housing  movement  a  long  way  towards 
radical  reforms.  If  the  schools  or  playgrounds  need 
improvement  and  expansion,  pictures  and  charts 
showing  what  has  been  accomplished  in  other  similar 
communities  and  the  social  returns  that  these  improve- 
ments have  produced  will  soon  stimulate  not  only  a 
demand  for  improvements,  but  will  bring  new  workers 
into  the  folds  of  the  surveying  forces. 

The  daily  press  may  also  be  called  to  assist  in  the 
establishment  of  higher  standards  of  social  and  govern- 
mental efficiency  with  a  view  to  preparing  public 
opinion  for  the  task  of  meeting  the  findings  of  the 
contemplated  survey  with  open  minds  and  a  clear 
vision  of  what  is  possible  of  attainment  through  con- 
certed effort,  and  an  intelligent  interpretation  of  facts. 

SOURCES  OF  INFORMATION. 

In  every  community  there  are  many  sources  of 
information  from  which  may  be  derived  data  essential 
in  any  social  survey.  Many  of  these  sources  of  infor- 
mation are  part  of  the  recognized  function  of  public 
and  private  agencies.  The  department  of  vital  statistics 
of  a  community  which  records  births,  deaths,  marriages 
and  contagious  diseases  is  the  most  valuable  point  of 
departure  in  the  study  of  the  life  of  the  people  of  a 


SOURCES  OF  INFORMATION  23 

community.  The  records  of  the  municipal  or  private 
relief  agencies  of  the  city  contain  invaluable  data  upon 
which  to  base  an  estimate  of  the  extent,  character  and 
causes  of  dependency  that  exists  in  a  given  locality. 
The  records  of  the  school  department  are  the  best 
index  of  the  efficiency  of  the  schools  in  furnishing 
educational  facilities  and  of  the  child  problem,  that 
the  school  authorities  must  cope  with  in  the  carrying 
on  of  their  work. 

It  is  to  be  deplored,  however,  that  our  vital  statistics 
in  most  communities  are  disgracefully  inaccurate  and 
incomplete  even  when  compared  with  the  most  back- 
ward of  civilized  nations,  that  public  school  records 
are  inadequate  and  that  relief  records  are  a  compromise 
between  the  antiquated  notions  of  economy  and  privacy 
of  boards  of  directors  and  overseers  of  the  poor,  and 
the  pressure  for  time  that  agents  of  relief  organizations 
are  compelled  to  meet.  Even  in  the  advanced  com- 
munities case  records  are  the  object  of  dispute  between 
social  workers,  boards  of  directors  and  the  uninitiated 
public. 

A  case  record  is  a  more  or  less  accurate  picture  of 
facts  relating  to  an  individual  or  family,  secured  with 
a  view  to  facilitating  an  accurate  social  diagnosis 
which  would  lead  to  effective  and  prompt  treatment 
of  a  particular  case.  That  often  some  of  the  informa- 
tion gathered  and  recorded  relative  to  a  case  or  group 
of  cases  is  found  to  have  no  bearing  on  the  problem 
to  be  dealt  with  and  is,  therefore,  apparently  useless 
information  as  far  as  that  particular  case  is  concerned, 
is  not  to  be  doubted.  Upon  inquiry  it  will  be  found, 
however,  that  successful  medical  diagnosticians  must 
also  rely  upon  case  records  and  that  many  of  them 


24  THE  SOCIAL  SURVEY 

contain  useless  or  irrelevant  matter.  Efficient  service 
makes  it  necessary,  however,  to  obtain  a  large  amount 
of  information  which  can  be  sifted  in  the  search  for 
facts  and  factors  upon  which  an  accurate  medical 
diagnosis  can  be  based.  If  this  method  of  recording 
cases  is  essential  in  medicine,  which  is  surely  on  its 
way  towards  becoming  a  positive  science,  it  is  easily 
conceivable  that  in  the  field  of  social  service,  which 
is  still  a  great  way  from  having  developed  a  technique 
of  accurate  social  diagnosis,  this  method  of  treatment 
will  be  even  more  efficacious.  In  this  latter  field,  it 
must  be  remembered,  the  method  of  treatment  demands 
recognition,  not  only  of  the  individual  concerned,  but 
of  his  relation  to  a  complex,  not  wholly  understood 
and  constantly  changing  social  order. 

Many  social  service  workers  accept  the  task  of 
preparing  their  records  with  a  certain  degree  of  fatalistic 
submission  to  precedent  without  appreciating  the 
fundamental  need  for  a  knowledge  of  the  facts  upon 
which  to  base  judgment  that  will  be  fair  and  just,  not 
only  to  those  whom  they  propose  to  aid,  but  to  their 
own  sense  of  discrimination  and  understanding  of 
human  problems.  The  worker  who  claims  to  under- 
stand the  intricacies  of  human  life  in  relation  to 
society  without  investigating,  recording  and  cor- 
relating human  and  social  facts,  assumes  a  compre- 
hension of  society  that  in  the  centuries  past  has  been 
the  gift  of  only  a  few  of  the  epoch-making  geniuses 
who  have  hesitated  and  deliberated  long  before  taking 
the  responsibility  for  the  settling  of  human  destinies 
for  which  case  workers  almost  daily  make  themselves 
responsible. 

Admitting  for  the  sake  of  argument  that,  as  a  means 


SOURCES  OF  INFORMATION  25 

of  diagnosing,  case  records,  with  their  time-consuming 
costliness,  justify  only  in  part  the  financial  investment 
they  represent,  we  find,  upon  inquiring,  that  there 
is  a  wider  use  for  the  case  record  which  has  as  yet 
remained  untouched. 

Accumulated  experience  is  a  valuable  asset  in  all 
work,  but  in  social  service  its  value  can  hardly  be  over- 
estimated. The  daily  dealing  with  cases  of  profoundly 
varying  types  and  of  varying  degrees  of  interest  pro- 
duces upon  the  mind  of  the  worker  impressions,  the 
relative  importance  of  which,  when  translated  into 
the  personal  point  of  view  through  the  mentality  of 
the  worker,  is  bound  to  be  distorted  by  the  degree  and 
type  of  impressionableness,  if  I  may  use  the  word,  of 
this  same  worker. 

The  case  record,  when  kept  carefully  and  analyzed 
at  given  times,  should  serve  to  strengthen  personal 
convictions  derived  from  experience,  by  verifying  the 
results,  and  should  give  balance  to  personal  impres- 
sions by  affording  evidence  upon  which  they  may  be 
corrected  and  adapted  to  the  actual  facts. 

We  hear  much  about  efficiency  in  social  work,  but 
the  measurement  of  this  efficiency  can  only  be  brought 
about  by  a  careful  analysis  of  results.  It  is  true  that 
each  social  worker  has  a  personal  standard  of  efficiency, 
but  such  a  standard  can  be  conveyed  to  boards  of 
directors  and  the  charitable  public  only  through  the 
measurement  of  results  accomplished  and  failures 
encountered  in  the  service.  Both  the  social  worker 
and  the  public  need  more  than  the  word  or  impression 
of  the  worker  to  convince  them  of  the  value  and 
efficiency  of  a  particular  type  of  service.  A  careful 
analysis  of  the  case  records,  but  only  where  case 


26  THE  SOCIAL  SURVEY 

records  are  accurate  and  complete,  would  yield  a 
reliable  estimate  of  results  accomplished.  It  must  be 
remembered  that  charity  was  invented  as  a  means  of 
serving  the  poor  and  that  good  service  must  be  efficient. 
Beyond  the  measure  of  service  relating  to  individual 
workers  and  institutions,  we  will  find  a  use  for  good 
case  records  as  a  basis  of  comparison  between  the  work 

HAVE 

WE 

ENOUGH 

HOME  LIBRARIES  DARK  ROOMS 

HOSPITAL  BEDS  ROTTEH  HOSE 
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CHILDREN'S  LIBRARIES  FAGINS 

From  How  SHOULD  PUBLIC  BUDGETS  BE  MADE? 
Published  by  the  New  York  Bureau  of  Municipal  Research. 

of  different  individuals  or  agencies  working  in  different 
geographic  spheres  and  using  different  or  similar 
methods.  If  adequate  and,  as  far  as  possible,  uniform 
records  are  used  by  the  different  agencies  or  individuals, 
the  analysis  of  such  records  serves  as  a  medium  for 
the  exchange  of  information  concerning  results  ac- 
complished and  tests  of  efficiency  of  methods  when 
the  methods  are  the  same,  and  for  laboratory  experience 
when  the  methods  are  different.  This  value  of  ex- 


SOURCES  OF  INFORMATION  27 

change  of  experience,  whether  with  the  same  or  differ- 
ent method,  has  not  been  appreciated  sufficiently  in 
social  work,  and  should  command  the  attention  of 
both  workers  and  trustees.  The  value  of  case  records 
that  are  complete  and  uniform  as  a  test  of  methods 
of  social  service  from  a  laboratory  point  of  view,  is 
clearly  evident. 

Turning  from  the  value  of  the  good  case  record  as 
a  means  of  increasing  efficiency  of  service,  we  must 
not  disregard  the  record  as  a  source  of  information 
for  sociological  research.  Buried  in  the  scores  of 
thousands  of  records  of  welfare  agencies  of  this  country 
are  first-hand,  accurate  sociological  data  gathered 
without  bias  and  without  a  preconceived  point  of 
view.  Causes  and  effects,  response  to  treatment  and 
failure  to  respond,  adequacy  of  social  efforts  and  clear 
relationships  between  individual  and  community  con- 
ditions are  displayed  in  simple,  well  classified  and 
chronologically  arranged  records.  They  hold  for  use 
vast  stores  of  information  which,  when  analyzed, 
should  point  the  way  toward  a  more  constructive 
point  of  view  of  our  social  tasks  and  a  clearer  under- 
standing of  the  larger  social  problems  which  are 
clamoring  for  solution. 

The  social  survey  affords  the  most  fruitful  means 
of  utilizing  the  treasures  of  information  that  now  lie 
buried  in  the  archives  and  files  of  social  agencies.  By 
stimulating  a  more  intensive  use  of  the  case  record 
with  a  view  to  utilizing  it  in  the  study  of  pressing 
concrete  social  problems  such  as  the  survey  handles, 
the  double  purpose  of  more  accurate  diagnosis  of  cases 
and  a  clearer  understanding  of  the  larger  community 
problems  could  be  accomplished. 


CHARACTER  OF  THE  COMMUNITY. 

/TAHE  study  of  social  phenomena  has  advanced  far 
-••  enough  to  warrant  the  acceptance  of  the  princi- 
ple that  social  phenomena  are  not  merely  the  sum 
total  of  individual  action  and  interaction,  but  that 
these  actions  and  interactions  result  in  certain  syn- 
thetic social  structures  and  functions,  wholly  distinct 
from  individual  functions,  subject  to  laws  and  produc- 
tive of  active  forces  peculiar  to  the  social  structure 
and  the  social  structure  alone. 

All  social  phenomena  depend  upon  and  have  their 
being  in  two  fundamental  factors,  namely  territory 
and  population;  and  no  study  of  social  conditions  as 
manifestations  of  the  social  organism,  whether  they 
be  normal  or  pathological,  can  be  accurate  or  complete 
without  a  careful  analysis  of  these  two  factors. 

TERRITORY. 

By  territory,  is  meant  the  sum  total  of  natural  en- 
vironmental conditions,  such  as  climate,  topography, 
geological  and  chemical  composition  of  the  land,  the 
flora,  fauna,  and  the  relation  of  all  these  to  surrounding 
areas.  These  factors  are  the  essential  forces  in  deter- 
mining the  character  of  social  institutions  which 
population  creates  and  controls.  Population  is  the 
sum  total  of  human  elements  that  constitute  society, 
and  which  through  the  use  of  territory  and  through 
its  constant  effort  to  utilize  and  control  its  resources 
for  its  own  preservation  and  development,  bring  into 

28 


TERRITORY  29 

being  the  various  degrees  of  civilization  that  the 
reaction  of  man  upon  territory  make  possible. 

Cities,  villages  and  towns  represent  social  institu- 
tions or  partial  manifestation  of  such  institutions;  and 
like  society  as  a  whole,  depend  for  their  development 
and  dominant  characteristics  upon  both  territory  and 
population. 

In  this  book,  we  shall  not  be  able  to  go  minutely  into 
the  discussion  of  the  theory  of  territorial  or  geographic 
influence  upon  social  institutions.  Writers  like  Ratzel 
and  De  Greef  have  proved  the  truth  of  this  principle 
beyond  a  shadow  of  a  doubt  and  Gumplovitz  as  well 
as  Rotzenhoffer  have  proved  the  civilizing  value  of 
the  inter-relation  between  population  or  racial  groups. 

A  careful  study  of  the  cities  of  Europe  and  America 
with  their  highly  differentiated  characteristics  in  the 
way  of  physical  plan  and  diversity  of  industrial  develop- 
ment, as  well  as  in  their  social  and  governmental 
institutions,  raise  the  question  as  to  the  factors  that 
have  dominated  the  development  of  these  social  and 
economic  manifestations.  The  mountain  tops  with 
their  infertility  and  difficult  access  will  not  encourage 
the  building  of  a  densely  settled  community,  while  an 
island  within  easy  reach  of  fertile  fields  and  with  a 
navigable  water  front  will  tend  to  become  congested. 
The  cities  of  this  country,  like  the  cities  of  the  rest 
of  the  world,  are  the  products  of  the  interplay  of  human 
needs  and  desires  with  the  physical  conditions  which 
bring  the  population  within  reach  of  both  the  essentials 
and  luxuries  of  life.  The  development  of  these  cities, 
however,  being  dependent  upon  both  natural  or  terri- 
torial conditions,  and  the  development  of  human 
intelligence  and  knowledge  applied  to  community 


30  THE  SOCIAL  SURVEY 

planning  and  development,  have  shown  the  same 
waste  that  we  find  in  the  utilization  of  other  natural 
and  human  resources. 

Admitting  that  territory  and  population  are  essential 
in  the  development  of  a  community,  whether  it  be  a 
state,  a  city  or  village,  the  first  essential  of  a  social 
survey  should  be  the  study  of  the  natural  environ- 
mental conditions  of  the  community  to  be  surveyed. 

We  cannot  presume  to  deal  in  detail  with  all  the 
questions  that  should  be  raised  in  the  course  of  a 
survey  regarding  the  geographic  or  territorial  con- 
ditions controlling  the  life  of  the  community.  Among 
the  questions  to  be  raised  the  following  may  be  con- 
sidered as  most  important: 

1.  What  are  the  natural  resources,  such  as  mines,  agricultural 
areas,  forests,  fishing  areas,  within  easy  reach  of  the  people  of 
the  community? 

2.  What  are  the  natural  obstacles  in  the  way  of  a  proper 
utilization  of  these  resources  by  the  people  of  the  community? 

3.  Has  the  community  ever  undertaken  the  exploitation  of  any 
of  these  resources  and  what  have  been  the  difficulties  in  the  way 
of  such  exploitation? 

4.  Have  the  resources  been  controlled  by  social  conditions 
which  made  their  utilization  for  the  benefit  of  the  community 
difficult  or  impossible? 

5.  What  have  other  countries  done  to  meet  similar  conditions? 

6.  Are  the  natural  environmental  conditions  of  the  community 
such  as  to  promote  healthful  living  and  human  efficiency? 

7.  What  has  been  done  to  overcome  material  conditions,  cli- 
matic difficulties,  foods,  bad  natural  drainage,  obstacles  to  direct 
communication    with    adjoining    territories,    improvement    or 
development  of  natural  shipping  facilities  etc.? 

8.  What  is  the  total  of  natural  territorial  obstacles  to  the 
efficient  development  of  industries,  commerce  or  the  exploitation 
of  natural  resources  that  the  community  could  best  afford  to 


POPULATION  31 

overcome  and  which  would  give  the  best  results  both  to  the 
community  and  to  the  individuals? 

All  these  questions  cannot  be  answered  adequately 
without  carrying  out  a  parallel  study  of  the  type  of 
population  that  the  community  contains,  together 
with  the  plan  upon  which  the  community  was  originally 
built,  and  the  flexibility  that  such  plan  presents  in  the 
development  of  conditions  that  will  be  best  suited 
to  existing  conditions  and  needs. 

POPULATION. 

In  no  community  of  the  world  has  population  be- 
come so  complex  a  factor  in  the  development  and 
maintenance  of  social  institutions  as  in  the  United 
States.  The  vast  natural  resources,  and  the  rapid 
development  of  industry  and  commerce  have  turned 
towns  into  metropolitan  cities  and  villages  into  great 
industrial  centers  spreading  over  the  billions  of  acres 
of  the  territory  of  the  United  States,  and  united  by 
great  arteries  of  transit.  The  effect  of  all  this  is  to 
make  both  labor  and  industry  migratory,  to  make 
citizenship  transitory  and  the  social  and  economic 
conditions  constantly  shifting  and  changing. 

Added  to  the  expansion  of  the  communities  due  to 
the  natural  opportunities  presented  by  this  country, 
is  the  great  influx  of  foreign  population,  representing 
all  the  civilized  races  of  the  world,  and  constituting 
a  great  problem  of  social  and  industrial  assimilation, 
the  import  of  which  goes  far  beyond  the  mere  question 
of  political  assimilation,  the  problem  which  seems  to 
have  taken  the  foreground  of  assimilative  endeavor 
in  this  country. 

It  is  the  function  of  all   careful  students  of  the 


32  THE  SOCIAL  SURVEY 

population  in  relation  to  social  conditions,  to  discover 
the  degree  of  intimacy  in  the  relation  of  adequate 
social  and  economic  assimilation  to  its  more  remote 
need,  known  as  political  assimilation.  An  industrially 
unassimilated  foreign  element  is  vastly  more  dangerous 
to  American  institutions  and  citizenship  than  a  great 
mass  of  unnaturalized,  industrially  efficient  and  pro- 
ductive foreigners. 

Most  communities  can  be  studied  from  the  point  of 
view  of  their  populational  make-up,  by  a  careful 
examination  of  the  United  States  census  or  the  state 
census.  The  child  population  may  frequently  be 
studied  from  the  school  census,  which  is  commonly 
undertaken  by  the  educational  or  school  departments 
of  the  larger  cities. 

There  are  certain  questions  which  might  be  asked 
regarding  the  population.  A  few  will  serve  as  examples : 

1.  What  is  the  total  population  of  the  community? 

2.  What  has  been  the  rate  of  increase  in  the  last  fifty  years? 

3.  What  proportion  of  the  population  is  native  of  native 
parents,    native  of    foreign  parents,   foreign    born,    mixed   or 
colored? 

4.  What  is  the  distribution  of  the  population  according  to  age 
and  sex  by  place  of  birth  and  parentage? 

5.  What  is  the  total  number  of  married  persons  by  sex,  age 
periods  and  nationality? 

6.  What  is  the  total  number  of  persons  unmarried  over  twenty 
years  of  age?     (Give  the  sexes,  the  place  of  birth  and  when 
possible,  the  place  of  birth  of  parents) . 

7.  What  is  the  total  number  of  children  under  five  and  under 
one  year  of  age  of  the  different  nationalities  and  parentage? 

8.  Compare  all  of  the  answers  to  the  above  seven  questions 
for  the  last  census  year  with  similar  answers  for  the  ten  years 
previous,  and  if  possible  the  twenty  years  previous,  and   find 


POPULATION  33 

what   the   increase   or   decrease   has  been   during  the  periods 
mentioned.1 

The  information  gathered  in  answer  to  the  above 
questions  will  be  useful  as  a  guide  in  further  work. 
It  gives  the  foundation  for  a  study  of  the  human  ele- 
ment of  the  community  and  in  a  manner  is  a  concrete 
expression  of  the  growth  and  change  in  the  population 
during  a  reasonable  period  of  time. 

While  a  knowledge  of  the  general  distribution  of 
the  various  types  of  populational  elements  in  the 
community  is  an  essential  need  in  the  treatment  of 
local  social  problems,  we  must  recognize  that  within 
the  community,  there  are  definite  tendencies  towards 
the  segregation  of  specific  types  of  population,  in 
specific  and  more  or  less  well  defined  areas.  It  is 
important,  therefore,  to  consider  in  the  study  of 
population,  not  alone  the  total,  but  the  relation  of  the 
people  to  the  various  sectional  units,  such  as  wards  and 
districts  of  various  kinds,  which  are  frequently  deter- 
mined primarily  by  the  original  character  of  the  district, 
tenements,  sparsely  settled  and  cheap  areas,  etc. 

A  populational  map  of  a  community  indicating  the 
distribution  of  nationalities,  races,  school  population 
and  so  forth  is  indispensable  for  the  analysis  of  local 
social  problems  and  in  determining  adequate  means  of 
meeting  them.  Knowledge  of  the  distribution  of 
population,  when  related  to  the  geographic  conditions 
which  prevail  in  the  community,  is  the  basis  for  a  con- 
sideration of  the  city  or  town  plan. 

JThe  United  States  Census  is  taken  every  ten  years  on  the  ten 
year  period,  while  the  state  censuses  are  taken  every  ten  years 
on  the  five  year  period.  In  consulting  the  Census  it  is  well  to 
consult  the  one  nearest  the  date  of  the  investigation. 

3 


THE  CITY  PLAN 

THE  city  plan  which  represents  the  " territorial" 
character  of  the  community  in  its  relation  to  the 
life,  labor  and  leisure  of  the  people  is  determined  by 
the  social,  racial  and  economic  institutions  of  its  people. 
City  planning  is  emerging  from  the  uncoordinated  and 
socially  uneconomical  methods  which  controlled  the 
earlier  development  of  our  cities  and  towns  into  a 
clearly  denned  policy  consistent  with  the  recognized 
needs  of  modern  civilization. 

It  is  extremely  difficult  to  formulate  a  limited  num- 
ber of  definite  questions  which  may  be  used  as  a  basis 
of  measurement  of  the  efficacy  and  efficiency  of  the 
city  plan.  Keeping  in  mind  the  three  prerequisites  of 
a  socialized  plan,  namely,  the  adequate  recognition  of 
the  needs  of  all  the  people,  in  so  far  as  the  preservation 
of  their  life;  the  facilitating  of  the  efficient  exercise  of 
their  power  to  labor;  and  the  affording  of  adequate  and 
well  balanced  facilities  for  the  use  of  their  leisure^  we 
can  apply  to  the  city  plan  well  defined  standards  of 
measurement,  upon  which  valuable  criticisms  and  con- 
structive improvements  may  be  based. 

In  order  to  ascertain  what  relation  the  city  plan 
bears  to  the  people,  as  expressed  in  the  three  elements 
which  the  city  plan  presumes  to  provide  for,  we  must 
analyze  more  minutely  each  element  as  related  to  the 
people.  Life,  for  its  continuance,  depends  upon  the 
following  elements:  air,  light,  food,  .clothing,  and 
.shelter.  Of  these,  all  but  clothing  are  more  or  less 
influenced  by  the  city  plan.  A  few  questions  regard- 

34 


Si 

a  •§ 


is 

is 


o  c 


36  THE  SOCIAL  SURVEY 

ing  each  of  these  elements  may  further^promote  an 
intelligent  analysis  of  the  existing  plan  and  the  develop- 
ment of  ideas  and  ideals  that  should  be  embodied  in 
the  replanning  of  existing  facilities. 

THE  AIR 

The  protection  and  continuance  of  life  depends  upon 
the  kind  of  air  we  breathe.  Its  quality  should  be  con- 
sidered from  the  following  points  of  view: 

1.  Are  the  streets  so  laid  out  as  to  afford  a  free  circulation 
of  air  between  built  up  areas? 

2.  Has  pollution  of  the  air  due  to  industrial  plants,  waste  dis- 
posal facilities,  the  smoke  nuisance,  been  controlled  by  a  proper 
segregation  of  those  activities  that  are  likely  to  pollute  the  air 
of  the  community? 

3.  Has  sufficient  vegetation  been  planted  and  maintained  in 
streets  and  open  areas  to  assist  in  the  purification  of  the  air 
and  control  the  temperature,  particularly  during  the  summer 
months? 

4.  Have  the  prevailing  winds  been  considered  in  the  laying  out 
of  the  streets,  so  as  to  provide  protection  against  inclement 
weather  in  winter  and  summer? 

5.  Have  building  restrictions  been  provided,  so  as  to  remove 
the  houses  of  the  people  to  the  farthest  possible  point  from  the 
dust  and  dirt  of  the  street? 

The  above  are  definite  requirements  of  a  city  plan 
and  are  clearly  coordinated  with  the  problem  of  proper 
light  which  may  be  provided  by  the  recognition  of  the 
following  requirements : 

1.  Is  the  orientation  of  the  streets  and  the  houses  arranged 
with  relation  to  a  maximum  amount  of  sunshine  for  the  largest 
possible  street  and  window  areas? 

2.  Are  distances  between  buildings  restricted,  so  that  a  maxi- 
mum amount  of  light  and  sunshine  is  available  for  the  interior 
of  the  buildings  ? 

3.  Is  the  height  of  the  buildings  so  restricted  as  to  make  pos- 


THE  CITY  PLAN— FOOD  SUPPLY  37 

sible  an  equitable  distribution  of  sunshine  to  all  buildings  and 
streets  instead  of  permitting  tall  buildings  to  dispossess  the 
smaller  structures  of  their  due  amount  of  light  and  sunshine  ? 

FOOD  SUPPLY 

Although  air  and  light  would  seem  to  be  free  elements 
in  nature,  it  is  a  striking  paradox  that  in  our  cities, 
brick,  mortar  and  labor  out  of  which  our  cities  are 
built  are  cheaper  than  sunshine  and  air.  The  food 
supply,  however,  is  purchased  by  the  people  at  daily 
fluctuating  prices  and  in  as  far  as  this  is  possible,  in 
accordance  with  immediate  needs.  While  people 
may  be  willing  to  forego  certain  shortcomings  in  the 
daily  supply  of  air  and  sunshine,  they  seldom  submit 
without  resistance  to  a  restriction  of  the  food  supply. 

Although  the  city  plan  cannot,  in  the  long  run,  con- 
trol prices  and  supplies  dependent  upon  the  national 
market,  the  relation  of  the  distribution  of  a  given  food 
supply  among  the  people  of  a  given  city  can  be  and 
should  be  determined  as  far  as  possible,  by  a  proper 
planning  scheme. 

Some  of  the  questions  to  be  asked  in  this  connection 
are  as  follows; 

1.  Have  public  markets  under  municipal  control  been  pro- 
vided? 

2.  Are  these  markets  located  at  strategic  points  where  they 
are  easily  accessible  to  the  largest  possible  number  of  people? 

3.  Are  these  markets  connected  with  the  main  transit  lines, 
so  as  to  make  it  possible  to  ship  to  and  from  such  markets  the 
necessary  products  to  be  handled? 

4.  Have  facilities  for  the  direct  marketing  of  farm  products 
been  provided  at  convenient  points  in  the  community? 

5.  Is  the  distribution  of  population  so  controlled  as  to  keep 
distances  between  points  of  distribution  of  products  and  the  con- 
sumer reasonably  limited? 


38  THE  SOCIAL  SURVEY 

6.  Are  the  building  lots  in  the  areas  occupied  by  the  wage 
earning  classes  sufficiently  large  to  permit  of  a  limited  amount  of 
farming  ? 

It  is  a  well  known  fact  that  congestion  promotes  a 
certain  reduction  in  the  cost  of  the  food  supply  because 
of  the  greater  competition  among  merchants  and  the 
greater  quantities  that  can  be  distributed  from  one 
center.  It  is  the  function  of  city  planning  to  counteract 
the  disadvantages  of  congestion  by  proper  provision 
for  the  distribution  of  the  food  supply. 

SHELTER 

The  discussions  of  the  problem  of  providing  for 
adequate  shelter  or  housing  facilities  for  the  working 
people  will  be  given  fully  in  the  chapter  on  Health.  All 
that  needs  to  be  said  at  this  juncture,  is  that  a  well 
planned  city  generally  is  likely  to  facilitate  good 
housing  conditions  and  a  poorly  planned  city  is  likely 
to  afford  poor  housing  conditions.  As  the  intensity 
of  the  use  of  the  land  permitted  by  the  city  plan 
determines  the  money  value  of  the  land,  and  as  free 
use  of  the  land  is  the  determining  factor  in  the  type 
of  house  generally  built,  the  city  plan  with  all  its  re- 
strictions, controls  to  a  very  considerable  extent  the 
type  of  house  to  be  constructed. 

All  that  can  be  said  at  this  point  regarding  the 
standard  by  which  the  housing  provisions  should  be 
judged  in  the  light  of  the  city  plan,  is  to  restate  the  oft 
repeated  dictum,  that  good  housing  provides  for 
"healthful  accommodations,  adequately  provided  with  fa- 
cilities for  privacy  and  comfort,  easily  accessible  to  centers 
of  employment,  culture  and  amusement,  accessible  from 
the  center  of  distribution  of  the  food  supply,  rentable  at 


THE  CITY  PLAN— RELATION  TO  LABOR          39 

reasonable   rates  and  yielding  a  fair  return  on  the  in- 


vestment."1 

THE  SPECIAL  AMENITIES  OF  LIFE. 

While  the  essentials  of  life  above  enumerated  are 
imperative  for  its  preservation,  the  city  plan  should 
concern  itself  with  the  prevention  of  all  conditions 
which  may  be  detrimental  to  the  normal  functioning 
of  the  human  system  both  physical  and  mental. 

The  troublesome  noises  of  traffic,  the  injurious  odors 
of  factories,  the  marring  of  the  landscape  by  unsightly 
structures,  are  all  conditions  that  come  properly  under 
the  control  of  the  city  planner,  and  their  presence 
in  areas  where  the  people  carry  on  their  daily  life  is 
an  indication  of  bad  planning. 

RELATION  OF  CITY  PLAN  TO  LABOR. 

With  advancing  civilization,  production  has  become 
largely  social,  and  the  facilities  for  the  use  of  labor 
depend  upon  the  relation  of  the  labor  supply  to  the 
industries;  the  relation  of  the  industries  to  the  supply 
of  raw  materials  and  the  centers  of  distribution  of  the 
products.  The  city  plan  must  recognize  these  inter- 
dependencies,  between  the  factors  controlling  pro- 
duction, and  must  provide  facilities  for  easy  adjust- 
ment between  them.  From  the  point  of  view  of 
production,  the  city  planner  must  recognize  the  follow- 
ing essential  principles: 

1.  Easy  flow  of  the  supply  of  labor  to  the  centers  of 
employment  through  a  transit  system  that  is  adequate 
for  the  fluctuation  of  individual  workers  from  one 


iCarol  Aronovici — Constructive  Housing  Reform — National  Muni- 
cipal Review,  Jan.,  1914. 


40  THE  SOCIAL  SURVEY 

center  of  employment  to  another  without  increase  of 
cost  and  without  change  of  residence. 

2.  Fixed  industrial  centers  confined  to  definite  zones 
t  and  connected  by  water  or  land  transit  facilities  in- 
volving the  least  possible  cost  and  affording  the  greatest 
speed  and  regularity  of  service. 

3.  Utilization  of  areas  suitable  for  industrial  develop- 
ment without  encroachment  on  residential  areas  and 
without  making  the  expansion  of  industries  too  costly 
or  impossible. 

4.  Due  regard  for  the  development  of  industries  best 
suited  to  the  locality  planned,  and  the  segregation  of 
industries  according  to  their  needs  as  to  open  space, 
transit,  labor  supply,  supply  of  raw  materials,  and 
range  of  centers  of  distribution. 

5.  Adequate  provisions  for  the  protection  of  the 
health  of  the  workers  through  restrictions  upon  the 
use  of  land  which  would  give  to  the  workers  a  maximum 
amount  of  air,  light  and  sunshine  during  working  hours. 

A  recognition  of  these  requirements  will  protect  the 
workers,  promote  a  distribution  of  industries,  keep 
the  wheels  of  production  going  and  the  people  employ- 
ed. If  the  plan  of  a  city  does  not  recognize  these 
principles,  it  cannot  be  recognized  as  adequate  for 
modern  industrial  and  human  needs. 

RELATION  OF  THE  CITY  PLAN  TO  LEISURE. 

The  changes  that  have  taken  place  in  the  industrial 
life  of  the  people  during  the  last  century  due  to  im- 
proved machinery,  and  an  increasingly  widespread 
demand  for  leisure  have  placed  before  the  city  planner 
the  problem  of  providing  within  the  city  plan  well 
developed  and  intelligently  located  and  distributed 


THE  CITY  PLAN  AND  LEISURE  41 

recreational  centers,  such  as  would  serve  the  needs 
of  the  greatest  possible  number  of  the  population. 

So  far  city  planning  has  not  developed  an  adequate 
technic  for  the  study  of  leisure  time  needs  and  pro- 
vision for  meeting  them.  Civic  and  recreational  centers 
are  suffering  from  a  very  serious  confusion  that  exists 
in  the  minds  of  the  people  in  charge  of  much  of  our 
planning  work.  Monumental  structures  and  orna- 
mental open  spaces  are  frequently  confused  with  the 
recreational  needs  of  the  people;  the  size  of  the  crowd 
being  the  measure  of  successful  location  of  social  and 
civic  structures,  while  neighborhood  activities  and 
neighborhood  life  are  assuming  the  uncivic,  unsocial 
and  impersonal  character  of  the  tenement.  What  is 
needed,  however,  is  not  a  concentration  of  recreational 
activities  such  as  we  are  witnessing  in  many  of  our  large 
cities,  but  a  socializing  of  recreational  activities.  Con- 
centration and  congestion  of  such  activities  tends  to 
become  anti-social  rather  than  social  and  should, 
wherever  possible,  be  avoided.  Neighborhood  develop- 
ment of  recreational  activities  such  as  are  represented 
by  the  neighborhood  playground,  school  gymnasium 
and  lecture  hall,  branch  libraries  and  other  purely 
local  agencies  which  are  a  part  of  the  neighborhood 
and  which  become  an  integral  part  of  the  life  of  the 
people  should  be  the  keynote  of  the  development  of 
recreation  centers. 

The  white  way  may  be  an  extremely  striking  and 
interesting  civic  achievement,  admired  and  boasted 
of  by  all,  but  its  anti-social  potentialities  are  far  in 
excess  of  its  commercial  and  recreational  value.  The 
modern  ideals  of  recreation  demand  a  crystalization 
of  the  community  spirit,  not  by  the  development  of  the 


42  THE  SOCIAL  SURVEY 

impersonal  and  overwhelmingly  costly  civic  improve- 
ments, but  the  encouragement  of  sane,  healthful  and 
intimately  social  intercourse  that  will  give  every 
individual  a  place  in  his  neighborhood  and  foster  a 
community  patriotism  through  an  intensive,  well 
organized,  highly  social  and  fundamentally  civic  neigh- 
borhood development. 

When  we  reach  a  point  where  every  individual  will 
be  a  part  of  the  neighborhood  life  in  which  he  lives 
and  where  he  will  fill  a  place  that  cannot  easily  be 
filled  by  anyone  else  and  when  every  one  will  bear  a 
share  of  the  burden  as  well  as  share  in  the  joys  and 
benefits  and  pride  of  neighborhood  life,  we  shall  have 
socialized  our  cities  more  than  any  impersonal  and 
commercialized  effort  could  ever  accomplish  for  the 
community  as  a  whole. 

While  I  must  confess  that  I  find  it  difficult  to  crystal- 
ize  into  a  few  questions  the  lines  of  inquiry  required 
by  an  adequate  survey  of  the  recreational  or  leisure 
time  facilities  of  a  community,  there  are  certain  definite 
facts  and  factors,  which  when  ascertained,  may  be 
used  as  a  guide  in  formulating  a  recreational  plan  and 
in  forming  a  fair  conception  of  the  adequacy  of  ex- 
isting facilities. 

The  following  are  some  of  the  conditions  to  be  con- 
sidered in  the  examination  of  leisure  time  facilities  in 
their  relation  to  the  city  plan: 

1.  The  distribution  of  population  in  relation  to  recreational 
centers  such  as  parks,  playgrounds,  large  play  areas,  public  halls, 
public  community  centers  such  as  schools,  etc. 

2.  The  racial  and  occupational  character  of  the  population  in 
relation  to  the  recreational  facilities  of  given  neighborhoods. 

3.  The  character  of  recreational  facilities  in  relation  to  their 
use  by  the  variqus  classes  of  people. 


THE  CITY  PLAN  AND  LEISURE  43 

4.  The  characteristic  recreational  needs  and  possibilities  for 
self  expression  of  people  in  relation  to  the  facilities  for  such 
expression. 

(Each  nationality  has  its  own  traditional  amusements  and) 
methods  of  play  which  should  be  studied  and  given  an  oppor-  [ 
tunity  for  expression.) 

5.  The  relation  between  the  cost  of  amusements  per  individ-  •> 
ual  in  the  use  of  commercialized  amusements  as  compared 

the  cost  of  such  amusements  to  the  city. 

6.  Obstacles  in  the  way  of  an  increased  use  of  the  public  recre- 
ational facilities  as  to  access,  inadequacy,  lack  of  variety,  racial 
and  national  prejudices,  artificial  boundary  lines  between  popu- 
lational  groups  due  to  natural  or  artificial  barriers,  etc. 

Answers  to  these  questions  can  be  obtained  only  by 
an  exhaustive  study  of  conditions  in  each  neighborhood 
and  recreational  center.  The  results  attained,  how- 
ever, throw  light  upon  the  whole  leisure  time  problem 
of  the  community,  and  may  assist  in  determining  upon 
a  clear  cut  policy  which  would  affect  both  the  manage- 
ment and  use  of  present  facilities  as  well  as  the  planning 
of  future. 

The  questions  that  I  have  endeavored  to  raise 
regarding  the  city  plan  are  far  from  representing  either 
the  full  extent  of  the  problem  or  its  import.  I  have 
merely  endeavored  to  give  the  reader  a  glimpse  into 
the  far  reaching  significance  of  city  planning  work  as 
a  determining  factor  in  the  life  of  the  people. 


LOCAL  GOVERNMENT 

IT  is  a  generally  accepted  fact,  demonstrated  by 
repeated  study,  that  the  type  of  government  of  a 
community  not  only  reflects  the  citizenship  of  that 
community,  but  determines  to  a  very  considerable 
extent  the  number  and  solution  of  many  of  its  social 
problems.  The  understanding  of  the  organization 
and  work  of  the  local  government  is  therefore  a  pre- 
requisite of  efficient  work  in  remedying  existing  con- 
ditions, and  oi"ten  in  explaining  civic  apathy,  that  is 
so  dangerous  to  American  democracy. 

Some  of  the  facts  to  be  ascertained  concerning  local 
government  are  as  follows: 

1.  Is  the  community  an  independent  governmental  unit  or  is 
it  part  of  some  other  city  or  town? 

2.  Is  the  government  based  upon  a  special  charter  or  is  there 
a  general  charter  that  applies  to  all  localities  of  the  same  class 
in  the  state? 

3.  What  changes  have  taken  place  in  the  charter  during  the 
last  fifty  years? 

4.  Has  the  commission  or  city  manager  plan  been  tried  in  your 
community? 

5.  How  large  is  the  city  council  and  board  of  aldermen,  or 
whatever  the  local  legislative  body  may  be? 

6.  Are  the  councihnen  elected  at  large  or  by  wards? 

7.  What  powers  does  the  mayor  have? 
I  What  power  does  the  council  have? 

9.  What  powers  does  the  state  legislature  have  in  relation  to 
local  administrative  and  financial  affairs? 

10.  What  laws  intended  to  benefit  the  community  have  been 
submitted  to  the  State  Legislature  within  the  last  ten  years,  and 
have  failed  of  passage? 

11.  How  are  the  judicial  officers  of  the  city  appointed,  what 

44 


LOCAL  GOVERNMENT  45 

is  their  tenure  of  office  and  what  types  of  cases  do  they  handle? 

12.  Are  the  schools  administered  by  elective  officers  or  by  an 
appointive  committee?     How  are  the  appointments  made? 

13.  What  are  the  departments  which  constitute  the  work  of 
the  local  government? 

14.  To  whom  are  the  heads  of  each  department  responsible 
and  what  is  the  extent  of  this  responsibility? 

15.  What  is  the  appropriating  body  which  decides  upon  the 
the  distribution  of  the  public  funds? 

16.  Are  budgetary  estimates  published   in  advance  or  are 
requests  made  privately  by  department  heads  to  the  appropriat- 
ing body? 

17.  What  legislation  affecting  the  health  and  morals  of  the 
community  as  a  whole  has  the  council  enacted  within  the  last 
five  years? 

18.  What  local  problems  have  arisen  within  the  last  ten  years 
which  have  not  been  solved  on  account  of  the  limited  powers  of 
the  local  government? 

19.  What  means  of  publicity  do  the  city  departments  use  to 
inform  the  public  of  their  work?     Are  published  reports  required 
by  law  and  if  so,  is  the  form  determined  or  is  it  left  to  the  dis- 
cretion of  the  reporting  department? 

20.  What  method  of  checking  accounts  is  in  use? 

It  is  clear  from  the  above  questions  that  the  points 
emphasized  relate  to  the  machinery  of  the  local  govern- 
ment in  its  relation  to  the  individual  voter  as  a  part 
of  the  whole  community  or  of  a  particular  neighborhood 
or  ward.  The  distribution  and  use  of  the  city's  or 
town's  financial  resources  have  long  been  the  subjects 
around  which  have  centered  most  of  our  existing  or 
suspected  graft.  Inadequacy  and  inefficiency  of  service 
have  frequently  been  attributed  to  insufficient  financial 
resources  when  fundamentally  a  lack  of  understanding 
of  the  community's  needs  has  caused  an  unintelligent 
and  unreasonable  budgetary  distribution. 

The  relation  between  existing  home  rule,  its  efficacy 


46  THE  SOCIAL  SURVEY 

and  the  handicap  resulting  from  its  limitations  have 
been  emphasized  in  the  above  questions,  so  that  some 
judgment  regarding  needed  charter  changes  may  be 
formulated. 

The  above  general  questions  have  to  do  particularly 
with  the  organization  of  the  government  and  to  a 
certain  extent  with  the  legislative  powers  of  the  com- 
munity. The  taxing  powers  and  the  financial  condition 
of  the  locality  may  be  ascertained  by  endeavoring  to 
answer  the  following  questions : 

1.  What  is  the  tax  rate  and  how  is  it  determined? 

2.  What  is  the  number  of  taxpayers  upon  real  estate  as  com- 
pared with  the  number  of  taxpayers  upon  personal  property? 

3.  What  are  the  laws  concerning  assessments? 

4.  Is  land  assessed  separately  from  improvements? 

5.  What  share  of  the  taxes  is  being  derived  from  public  service 
corporations? 

6.  What  other  revenue  is  derived  from  public  service  corpor- 
ations? 

7.  What  other  revenues  does  the  city  derive  from  sources  such 
as  renting  of  property,  fines,  licenses,  etc.,  and  what  proportion 
of  the  total  revenue  do  they  form? 

8.  Do  the  taxes  meet  the  needs  of  the  present  budget  or  is 
money  being  borrowed  to  pay  current  expenses? 

9.  What  is  the  borrowing  limit  and  how  much  is  the  indebted- 
ness of  the  community? 

10.  Is  there  a  special  tax  for  school  purposes  and  what  is  the 
rate? 

11.  In  what  relation  does  the  increase  of  city  revenue  from 
taxation  stand  to  the  total  increase  in  population? 

12.  Is  any  differentiation  made  in  the  rate  of  taxes  between 
assessed  valuation  based  upon  purchase  price  and  revenue  pro- 
ducing values  such  as  is  represented  by  the  public  service  corpo- 
rations? 

These  are  only  a  few  of  the  numerous  questions 
that  should  be  asked  in  connection  with  a  study  of  the 


LOCAL  GOVERNMENT  47 

local  government.  It  is  hoped  that  in  the  process  of 
securing  the  data  relating  to  them,  other  questions 
will  suggest  themselves  which  are  more  distinctly  of 
a  local  nature  and  which  will  lead  to  a  better  under- 
standing of  conditions  than  we  can  hope  to  suggest. 
The  lack  of  uniformity  in  the  town 'and  city  govern- 
ment of  this  country  and  the  specific  phases  of  admin- 
istrative work  inherent  in  particular  localities  make 
a  fuller  outline  of  inquiry  inadvisable.  It  is  to  be 
hoped,  however,  that  in  choosing  the  workers  in  this 
field,  tax  payers,  lawyers,  real  estate  dealers,  bankers, 
employers  of  labor,  labor  leaders  and  other  men 
familiar  with  public  affairs  will  be  found  willing  to 
take  the  work  into  their  hands. 

Within  the  last  twenty  years  little  progress  has  been 
made  in  taxation  methods.  With  the  rapid  increase 
in  population  due  to  foreign  immigration,  the  growing 
congestion  in  our  cities  and  the  shifting  of  wage  earners 
from  one  industrial  center  to  another,  the  increasing 
tax  rates  caused  by  necessary  school  facilities,  health, 
police  and  fire  protection  to  be  provided  for  a  non-tax- 
paying  population  are  becoming  more  and  more  burden- 
some and  inequitable.  A  clearer  vision  of  the  tax 
problems  is  greatly  needed  in  every  community  so 
that  a  more  just  and  adequate  system  of  taxation  may 
be  devised  and  applied.  Western  and  Canadian  cities 
are  experimenting  with  new  methods  and  are  securing 
the  desired  results.  The  fundamental  philosophy  of 
all  new  systems  of  taxation  is  based  upon  the  principle 
of  returning  to  society  the  values  created  by  it  and 
infusing  into  the  tax  burden  a  promotive  rather  than 
a  restrictive  element  of  activity  and  production. 


48  THE  SOCIAL  SURVEY 

THE  CITY  BUDGET. 

Having  ascertained  the  sources  and  amount  of 
revenues  that  the  city  has  at  its  disposal,  the  method 
of  distribution  of  these  revenues  between  the  different 
departmental  activities  must  be  ascertained. 

Generally  speaking,  the  expenditures  of  a  municipal- 
ity may  be  classified  into  general  maintenance  and 
permanent  improvements.  It  is  an  accepted  principle 
in  American  municipalities,  that  the  general  main- 
tenance fund  must  be  derived  from  general  taxes  and 
that  improvements  should  be  made  with  money  secured 
by  loans  and  guaranteed  by  bond  issues.  In  some 
instances  where  the  taxes  are  inadequate  to  meet  the 
necessary  exigencies  of  the  community,  and  where 
there  is  reluctance  on  the  part  of  the  governmental 
party  in  power  to  raise  taxes,  funds  derived  from  bond 
loans  are  used  for  current  expenses. 

Relative  to  the  general  distribution  of  funds  derived 
from  taxes  the  following  facts  should  be  ascertained : 

1.  Does  the  municipality  have  a  definite  system  of  annual 
budgetmaking,  upon  which  appropriations  are  based? 

2.  Is  the  distribution  of  funds  to  each  departmental  activity 
based  upon  an  itemized  departmental  estimate? 

3.  Are  increases  for  departmental  expenditures  based  upon  the 
normal  increase  in  revenue  or  upon  carefully  studied  needs? 

4.  In  what  ways  does  the  appropriating  body  ascertain  the 
needs  of  the  community  upon  which  to  base  appropriations  ? 

5.  Is  there  a  permanent  body  of  trained  persons  studying 
throughout  the  year  the  changes  in  the  needs  of  the  community 
with  a  view  to  guiding  the  body  which  controls  the  finances  of 
the  municipality  in  their  distribution  of  funds? 

6.  Are  individual  departmental  activities  studied  from  time  to 
time  in  order  to  ascertain  whether  they  may  not  be  abolished, 


MUNICIPAL  IMPROVEMENTS  AND  LOANS        49 

and  other  more  necessary  and  suitable  functions  established  in 
their  stead? 

7.  Are  questions  of  relative  importance  of  activities  weighed 
from  the  point  of  view  of  political  interest  or  service  to  the  com- 
munity? Are  hospital  needs,  for  example,  disregarded  in  favor  of 
a  firemen's  parade  or  a  bandstand? 

These  few  questions  indicate  the  trend  of  investiga- 
tion that  should  be  pursued  by  those  carrying  on  a 
survey  in  order  to  determine  upon  the  method  employed 
in  dispensing  the  people's  money.  The  result  may 
be  a  complete  change  in  the  method  of  taxation  and 
use  of  tax  funds. 

MUNICIPAL  IMPROVEMENTS  AND  LOANS. 

Practically  all  permanent  improvements  in  our 
municipalities  are  made  with  money  obtained  in  bond 
issues.  The  assumption  is  that  in  order  to  do  justice 
to  the  present  generation  by  distributing  the  financial 
burden  among  those  who  are  to  benefit  by  the  im- 
provement, the  next  generation  of  tax  payers  should 
be  called  upon  to  assist  in  meeting  the  financial  obliga- 
tion involved  by  such  improvements. 

In  the  study  of  the  use  of  money  derived  from 
municipal  loans,  in  relation  to  its  use  for  improvement 
which  will  benefit  the  next  generation,  three  important 
factors  should  be  considered;  namely,  cost,  durability 
and  service. 

COST.  Municipal  improvements  are  mainly  centred 
upon  sewer  systems  and  disposal  plants,  water  supply 
and  filtration  plants,  street  systems  and  land  divisions, 
park  and  parkway  systems,  playgrounds,  etc.  All 
these  improvements  are  generally  made  with  money 
derived  from  municipal  loans  amortized  during  periods 


50  THE  SOCIAL  SURVEY 

of  from  thirty  to  fifty  years.  In  other  words,  every 
piece  of  important  municipal  engineering  and  im- 
provement is  carried  out  by  mortgaging  our  children, 
by  placing  obligations  and  duties  upon  posterity. 
This  being  the  case,  it  must  be  recognized  that  a  large 
share  of  the  money  used  by  the  municipality  does  not 
belong  to  the  people  who  have  either  directly  or  in- 
directly ordered  or  tolerated  the  improvements  to  be 
made. 

In  planning  municipal  improvements,  we  must 
measure  their  value  not  alone  in  terms  of  immediate 
need  and  efficiency,  but  in  terms  of  values  to  the  people 
who  must  in  the  end  stand  the  cost. of  these  improve- 
ments. That  this  has  not  been  the  case  heretofore 
is  generally  known. 

The  fact  is  that  there  has  been  no  greater  source  of 
graft  and  public  theft  in  recent  decades  than  in  the 
field  of  municipal  improvements,  for  which  the  citizens 
of  the  future  must  pay.  It  is  hardly  necessary  to 
emphasize  the  fact  that  this  form  of  graft  has  been  the 
source  of  some  of  the  most  degrading  evils  in  municipal 
affairs. 

Road  commissioners,  bridge  commissions,  and  the 
various  other  forms  of  political  commissions,  whose 
only  ability  consists  in  spending  money  enough  to 
satisfy  their  political  lieutenants,  and  in  bluffing  the 
public  sufficiently  to  keep  out  of  jail  and  to  remain  in 
office,  have  employed  money  derived  from  loans  in 
criminal  and  fraudulent  improvement  schemes,  without 
fearing  exposure.  The  doom  of  this  type  of  com- 
missions and  commissioners  could  have  been  sounded 
long  ago,  had  the  tax  paying  citizens'  .code  of  ethics 
contained  anything  beyond  the  crude  principles  of 


MUNICIPAL  IMPROVEMENT  AND  LOANS         51 

personal  honesty,  which  seems  to  tolerate  complicity 
in  dishonest  government  as  long  as  it  does  not  involve 
personal  danger. 

DURABILITY.  There  are  two  points  of  view  at 
least,  from  which  durability  in  public  improvements 
must  be  considered.  The  mere  engineering  aspect 
of  durability  entails  a  calculation  of  quantitative  and 
qualitative  factors  dealing  with  the  materials  on  hand 
and  the  immediate  and  future  use.  This,  however, 
relates  directly  to  the  improvement  in  question,  and 
is  seldom  based  upon  sociological  studies,  which  deter- 
mine with  accuracy  the  justification  of  investments 
made.  We  also  are  constantly  finding  that  certain 
standards  are  changing  with  the  times  and  demand 
costly  and  unnecessary  adjustments  that  could  have 
been  avoided  had  foresight,  which  comes  from  an  un- 
derstanding of  the  social,  economic  and  sanitary  needs 
of  a  community,  been  exercised.  Let  us  take  some 
of  the  best  known  lines  of  municipal  engineering,  and 
consider  their  relation  to  durability  from  the  point 
of  view  of  the  people. 

A  street  layout,  when  once  decided  upon,  fixes  for 
many  years,  and  in  some  instances  for  centuries,  the 
lines  of  development  of  certain  communities.  To 
change  and  divert  the  development  from  these  lines 
to  new  ones  is  costly  and  wasteful  in  every  way.  Phila- 
delphia's gridiron  system  is  a  good  example  of  develop- 
ment which  is  not  fit  for  a  large  city,  and  where  millions 
of  dollars  will  have  to  be,  and  are  now  being  spent, 
to  secure  changes  in  the  original  plans.  The  plan  of 
Philadelphia  was  undoubtedly  laid  out  with  a  view 
to  affording  the  simplest  possible  development  and 
give  the  greatest  regularity.  This  was  a  proper  princi- 


52  THE  SOCIAL  SURVEY 

pie  to  follow,  but  the  broader  needs  of  transportation, 
congestion  of  population,  distribution  of  industrial 
and  business  and  social  activities  were  wholly  over- 
looked. 

The  alley  system,  which  has  been  one  of  the  most 
serious  evils  in  the  development  of  our  cities  from  the 
point  of  view  of  housing,  was  made  possible  by  the 
maladjustment  of  the  city  plan  to  city  needs  and  the 
absence  of  initiative  among  municipal  engineers  in 
departing  from  the  old  system  of  street  development 
to  consider  more  seriously  the  modern  tendencies  and 
modern  needs. 

The  Washington  plan  which  is  held  out  as  one  of 
the  most  monumental  arid  far  reaching  undertakings 
in  the  line  of  municipal  planning,  failed  in  so  far  as  it 
did  not  provide  for  the  working  people  and  made 
necessary  the  development  of  alleys  that  have  for 
years  been  a  menace  to  the  health  of  the  people  of 
the  capital  city. 

The  plan  which  the  engineer  L' Enfant  made  for 
the  city  of  Washington  may  be  called  a  social  failure 
although  it  meets  the  needs  of  sumptuous  develop- 
ment that  is  generally  associated  with  the  capital  of 
a  country. 

In  measuring  the  durability  of  an  improvement  it 
is  important,  therefore,  to  consider  the  extent  of  the 
improvement  in  its  relation  to  possible  social  changes 
both  in  the  character  of  the  community  and  in  the 
type  and  number  of  people  to  be  served  in  the  future 
by  the  improvement  to  be  undertaken. 

Aside  from  fitness  to  changing  conditions,  we  must 
consider  the  wearing  qualities  of  such  improvements, 
using  as  a  basis  the  increasing  cost  of  maintenance 


MUNICIPAL  IMPROVEMENTS  AND  LOANS        53 

that  the  advancing  age  of  the  improvement  will  re- 
quire. It  is  only  on  such  a  basis  that  a  fair  estimate 
of  durability  can  be  made. 

SERVICE.  All  work  done  by  the  municipality  is 
social  service  work.  Some  of  it  is  repressive  and  is 
expressed  in  terms  of  control  of  conditions  and  individ- 
ual action  and  considerable  is  expressed  in  terms  of 
constructive  work.  As  all  municipal  improvements 
are  social  improvements  of  one  or  another  kind,  they 
should  be  measured  by  the  standard  of  service  that 
they  are  calculated  to  render.  This  being  the  case, 
we  must  admit  that  permanent  improvements  must 
be  subjected  to  measurement  on  the  basis  of  two 
standards  of  efficiency.  One  is  the  efficiency  of  the 
improvement  from  the  point  of  view  of  technical 
engineering,  and  the  other  is  the  degree  of  efficiency 
attained  as  a  means  of  serving  the  interest  of  the  public. 
A  structural  undertaking  may  be  a  marvel  of  technical 
skill,  and  at  the  same  time  stand  out  as  a  hopeless 
failure  from  the  point  of  view  of  social  efficiency. 

A  system  of  parks  and  playgrounds  which  is  a 
masterpiece  as  a  product  of  landscape  architecture, 
but  is  located  where  it  is  inaccessible  to  the  public 
is  socially  a  failure.  A  transit  system  that  meets 
existing  conditions  and  is  based  upon  estimates  of 
economic  returns  and  special  business  interests  may 
be  an  example  of  the  highest  type  of  engineering  skill, 
and  may  meet  every  requirement  of  high  finance,  but 
it  must  be  considered  as  a  complete  failure  if  it  does 
not  serve  the  interests  of  the  public  as  a  whole.  Another 
traffic  scheme  may  be  splendidly  adjusted  to  certain 
needs  of  a  particular  section  of  the  city  and  may  be 
injurious  to  the  health  and  comfort  of  the  very  people 


54  THE  SOCIAL  SURVEY 

it  serves  because  it  stimulates  congestion  which  carries 
with  it  bad  sanitation,  moral  dangers,  difficulties  of 
police  control,  concentration  of  vice  and  crime. 

Favoritism  or  undue  commercialism  in  the  planning 
and  development  of  such  systems  are  anti-social  and 
the  responsibility  for  each  work  rests  with  the  tax- 
payer. In  measuring  the  value  of  permanent  municipal 
improvements  from  the  point  of  view  of  service,  the 
extent  of  the  service  as  a  benefit  to  the  whole  com- 
munity should  be  considered.  Where  the  benefits  are 
limited  to  special  classes  or  neighborhoods,  the  burden 
should  be  placed  where  it  belongs. 

The  fundamental  philosophy  of  the  bond  issue  is 
justice  and  only  by  measuring  its  value  in  relation  to 
cost,  durability  and  service  can  justice  be  done. 


SUFFRAGE. 

THE  condition  of  the  local  government,  its  efficiency 
and  capacity  for  development  and  service  depend 
to  a  considerable  extent  upon  the  prevailing  suffrage 
laws  as  well  as  upon  the  character  of  those  enjoying 
the  right  and  taking  advantage  of  their  privilege  to 
vote.  A  knowledge  of  the  suffrage  conditions  in  a 
community  may  be  gained  by  inquiries  such  as  these: 

1.  What  are  the  local  suffrage  laws? 

2.  -What  is  the  race  and  nationality  of  the  probable  voters? 

a.  Do  women  have  full  franchise,  do  they  vote  on  school 
election  only,  or  are  they  wholly  deprived  of  the  franchise?" 

3.  Within   the   last  twenty  years  what  has  been  the  change 
in  the  national  and  racial  composition  of  the  persons  entitled 
to  vote? 

4.  What  was  the  difference  between  the  total  number  of  voters 
at  the  last  local  election  and  the  total  number  of  persons  entitled 
to  vote?     (Indicate  these  figures  by  nationality  and  place  of 
birth  of  father  if  possible.) 

5.  Are  there  ward  leaders;  and  if  so  what  is  their  character, 
business  interest,  connection  with  public  work  and  public  service 
corporations,  public  offices?     What  are  their  political  and  re- 
ligious affiliations  and  nationalities? 

6.  Have  the  various  nationalities  and  races  come  to  be  organ- 
ized into  political  clubs  and  if  so,  to  what  extent  and  for  what 
purpose? 

7.  Is  buying  and  selling  of  votes  a  general  practice,  and  if  so, 
what  parties  and  what  interests  practice  this  method? 

8.  What  is  the  usual  political  affiliation  of  the  various  nation- 
alities? 

9.  What  agencies  are  interested  in  the  development  of  intelli- 
gent  citizenship  among  the  natives  and  foreign  born  and  what 
results  have  been  accomplished  through  their. effort? 

The  question  concerning  the  reasonableness  of  the 
55 


56  THE  SOCIAL  SURVEY 

general  fear  lest  the  foreigner  may,  from  the  point  of 
view  of  citizenship,  prove  injurious  to  American 
democracy,  American  institutions  and  traditions,  can 
be  answered  more  intelligently  by  an  impartial  inquiry 
into  the  above  nine  questions  than  by  any  other  means. 
The  results  of  such  inquiry  may  bring  about  either 
greater  ease  of  mind  for  the  natives  or  a  more  patriotic 
activity  for  the  civic  education  of  foreigners,  stimulated 
by  a  knowledge  of  the  facts. 

AMERICANIZATION. 

The  great  war  and  the  contending  national  interests 
in  this  country  have  brought  forward  the  problem  of 
Americanizing  the  foreign  elements  with  all  the  force 
that  actual  or  imaginary  dangers  to  the  national  life 
of  this  country  could  develop.  There  is,  however, 
confusion  in  the  mind  of  the  general  public  as  to  the 
meaning  of  Americanization  that  a  social  survey 
should  not  overlook.  The  Americanization  of  the 
foreign  elements  through  the  acquisition  of  citizenship 
seems  to  have  taken  the  place  of  that  greater  need 
for  the  social,  industrial  and  intellectual  assimila- 
tion of  the  foreigner.  No  one  seems  to  recognize  the 
dangers  of  a  politically  incorporated  body  of  citizens 
whose  social  ideals,  economic  standards  and  intellectual 
attainments  form  a  greater  menace  to  American 
democracy,  if  given  political  power  than  if  deprived 
of  it. 

In  studying  the  facilities  for  Americanization  in  a 
community,  we  must,  therefore,  center  our  attention 
upon  the  following  conditions: 

1 .  In  what  relation  does  the  foreign  population  stand  numeri- 
cally to  the  natives  of  native  parents  or  natives  of  foreign  parents? 


AMERICANIZATION  57 

2.  What  is  the  average  number  of  years  that  pass  before  the 
various  foreign  elements  in  the  community  of  voting  age  obtain 
their  citizenship? 

3.  What  is  the  distribution  of  the  occupations  of  the  foreign 
voters  who  have  acquired  the  franchise  during  the  last  five  years? 

4.  If  all  the  foreign  males  of  voting  age  were  to  require  the 
franchise,  what  type  of  population  would  control  the  political 
situation  of  the  community?    -V 

5.  What  is.  being  done  to  care  for  the  education  of  the  foreign 
elements  preparatory  to  their  enfranchisement? 

6.  Is  the  political  situation  in  your  community  such  as  to 
give  the  foreigners  inspiration  to  strive  for  the  best  type  of 
government,  or  is  the  gang  with  its  grafting  politicians  going 
to  be  his  teacher  in  American  citizenship? 

7.  Is  the  foreigner  getting  justice  in  the  courts,  in  his  employ- 
ment and  in  the  protection  of  the  health  and  morals  of  his  family? 

8.  Are  the  schools  meeting  the  needs  of  the  potential  citizen- 
ship, both  in  relation  to  the  children  and  the  adults? 

These  and  many  other  questions  should  be  raised 
in  order  to  ascertain  whether  Americanizing  influences 
are  at  work  in  preparing  the  foreign  elements  for  their 
citizenship.  Unless  this  is  done,  we  shall  be  placing 
the  power  of  government  in  the  very  hands  which 
we  now  fear  as  a  menace  to  this  democracy. 


NDUSTRY. 


INDUSTRY,  or  that  combination  of  opportunities 
and  conditions  which  makes  up  the  chances  for 
labor,  the  sources  of  maintenance  and  the  assurance  of 
the  workers  against  the  dangers  of  overwork  and  un- 
derpay, unsanitary  and  dangerous  labor  conditions  and 
idleness  is  the  most  vital  force  in  the  community;  it 
is  the  power  that  determines  its  growth  and  character. 
This  broad  point  of  view  of  industry  should  be  so 
studied  as  to  show  its  relationship  and  influence 
upon  the  workers  and  upon  the  industries. 

For  a  clear  understanding  of  the  local  industrial 
problems  and  a  more  logical  plan  of  inquiry  it  is  advis- 
able to  classify  the  whole  subject  as  follows: 

1.  Types  and  Size  of  Industries. 

2.  Character  of  Workers  and  Compensation. 

3.  Steadiness  of  Employment. 

4.  Chances  of  Temporary  and  Side  Employment. 
^      5.     Protection  against  Unemployment. 

6.  Safety  in  Employment. 

7.  Welfare  Work. 

The  above  classification  covers  in  a  general  way 
the  main  aspects  of  the  study  of  industry  and  upon 
their  intelligent  treatment  and  a  careful  scrutiny  of 
the  facts  depend  the  answers  to  many  of  the  important 
industrial  problems  of  the  day. 

./ 

TYPES  OF  INDUSTRY. 

By  types  of  industry  is  to  be  understood  not  only 
the  production  of  the  mill  and  the  factory,  but  all 

58 


LOW  WAGES 

SEE  THE  SCREEN 


IN  ONE  TOIH  STUDIED  8Y  IKE  U.S.  CHILDREN'S  BUREAU 
FATHER'S  WEEKLY  WAGE 

UNDER  *tO 


WA6E-EABNING 
MOTHERS 


CHART  SHOWING  RELATIONS  BETWEEN  WAGES   OF  FATHERS,   PRO- 
PORTION OF  WORKING  MOTHERS  AND   DEATHS  OF  BABIES  PER 

1000  BIRTHS. 

Prepared  by  the  Children's  Bureau  of  the  United  States  Department 
of  Labor. 


60  THE  SOCIAL  SURVEY 

larger  productive  activities  which  use  labor  in  con- 
siderable quantities,  particularly  those  pursuits  which 
give  character  to  the  community  and  which  have 
determined  the  growth  of  the  population  and  the 
development  of  manufacture  and  trade. 

A  reasonably  comprehensive  idea  of  the  types  of 
industries  prevalent  in  the  community  can  be  obtained 
by  consulting  the  last  census  report  on  occupations 
and  selecting  the  pursuits  which  employ  the  largest 
number  of  laborers  or  workers.  A  standard  of  such 
study  may  be  found  by  placing  the  limit  of  workers 
at  one  hundred  persons  or  more  for  each  industry 
studied.  This  is,  however,  not  the  figure  which  should 
always  be  accepted  as  the  best,  but  should  rather  be 
a  point  from  which  to  determine  a  standard  by  taking 
into  account  the  extent  of  the  investigation  to  be 
made,  the  amount  of  time  available,  the  size  of  the 
community  and  the  number  of  workers  available  for 
the  survey. 

The  industries  to  be  considered  once  agreed  upon, 
the  following  questions  should  be  answered: 

1.  What  is  the  character  of  each  industry  and  how  many 
establishments  are  in  operation? 

2.  What  is  the  number  of  workers  employed  in  each  industry 
and  in  each  establishment? 

3.  Is  there  a  financial  or  legal  connection  between  any  of  the 
industrial  establishments? 

4.  What  has  been  the  growth  of  each  industry  in  the  last  ten 
years? 

5.  Have  any  establishments  been  abandoned  or  bought  out 
by  others  in  the  same  locality? 

6.  Have  any  outside   competing  interests  bought  out  local 
establishments  which  were  later  abandoned? 

7.  Are  most  of  the  industries  in  the  hands  of  local  people  or 


INDUSTRY  61 

are  they  in  the  hands  of  outsiders  who  have  come  to  seek  a  labor 
market? 

8.  How  are  industrial  establishments  taxed  and  how  does  it 
affect  the  establishment  of  new  industries? 

9.  Are  the  industries  so  co-ordinated  as  to  be  dependent  upon 
each  other's  products  or  not? 

10.  Do  industries  find  a  satisfactory  labor  supply  in  the  com- 
munity or  is  labor  imported  from  other  localities? 

11.  Are  extensive  means  of  advertising  for  labor  used  and 
what  responsibilities  do  the  employers  assume  towards  their 
imported  employees? 

12.  Is  the  importation  of  labor  due  to  an  actual  industrial 
demand  for  extra  help  or  to  a  desire  to  reduce  wages  by  over- 
stocking the  labor  market  and  hindering  the  unions? 

13.  In  what  relation  do  the  opportunities  for  employment 
stand  to  the  labor  market? 

14.  Is  there  sufficient  variety  in  the  industries  to  provide 
employment  for  all  the  various  types  of  workers  such  as  men  and 
women,  skilled  and  unskilled,  or  is  there  a  lack  of  adjustment  so 
as  to  afford  opportunities  for  employment  only  to  selected  classes? 

CHARACTER   OF   WORKERS   AND   COMPENSATION. 

The  above  inquiries  having  been  completed  and  the 
facts  clearly  and  comprehensively  stated,  the  character 
of  the  workers  and  wages  may  next  be  considered  and 
the  inquiry  should  follow  somewhat  along  the  following 
lines : 

1.  What  is  the  total  number  of  workers  in  each  industry  and 
if  possible  in  each  establishment? 

2.  How  many  of  the  workers  are  men,  women  or  children? 

3.  What  is  the  proportion  of   skilled  and  unskilled  workers  of 
each  sex? 

4.  What  are  the  nationalities  and  races  mainly  represented  in 
each  occupation? 

5.  What  is  the  maximum  and  minimum  wage  in  each  for  men,  — 
women  and  children  in  skilled  and  unskilled  trades? 

6.  Are  men  or  women  more  commonly  idle  in  particular  in-  *-L 
dustries  and  why?  / 


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STEADINESS  OF  EMPLOYMENT  •      63 

7.  Are  married  women  and  women  with  small  children  employ- 
ed and  to  what  extent? 

8.  Is  there  a  large  group  of  workers  without  family  connec- 
tions in  the  community? 

9.  Do  many  workers  live  in  other  localities  and  come  to  work 
in  your  community  or  vice  versa? 

10.  Are  skilled  workers  available  in  the  community  or  must 
they  be  brought  from  outside? 

11.  Are  the  schools  endeavoring  to  train  workers  along  the 
lines  required  by  local  industries  and  if  so,  are  the  products  of 
these  schools  finding  employment  in  the  locality? 

That  some  difficulties  will  be  found  in  ascertaining 
the  facts  relating  to  the  above  questions  must  be 
granted,  but  through  the  assistance  of  the  census, 
the  manufacturers  and  superintendents  of  manufactur- 
ing plants,  the  charitable  agencies,  the  school  authori- 
ties, the  ministers  and  the  voting  lists,  satisfactory 
results  can  be  obtained. 

STEADINESS  OF  EMPLOYMENT. 

One  of  the  most  serious  difficulties  in  modern  indus- 
try is  the  fluctuation  in  the  demand  for  labor  during 
various  periods  of  the  year.  The  community  life  of 
a  city  or  town  is  often  rendered  unstable  and  thriftless 
by  the  constant  changes  in  the  opportunities  for  regular 
and  well-paid  employment.  This  is  particularly  true 
of  small  populational  centers  where  only  a  limited 
number  of  industrial  establishments  of  the  same  kind, 
which  are  often  controlled  by  the  same  company  or 
corporation,  are  to  be  found.  An  inquiry  along  this 
line  might  be  based  upon  the  following  questions: 

1.  Do  your  industries  employ  steadily  through  the  year  the 
same  number  of  workers  and  what  industries  have  variations 
in  the  number  of  their  employees? 

2.  When  and  how  long  are  the  rush  and  slack  seasons  in  each 


64  THE  SOCIAL  SURVEY 

industry  and  what  classes  of  workers  are  affected  most  seriously 
by  them? 

3.  Is  the  work  of  the  industries  with  slack  seasons  such  as  to 
make  it  possible  for  workers  to  go  from  one  industry  to  another 
and  to  what  extent  is  this  the  practice? 

4.  Does  the  rush  season  bring  many  out  of  town  workers? 

5.  Are  men  or  women  most  commonly  affected  by  the  rush 
and  slack  seasons? 

6.  Has  work  been  suspended  because  of  strikes  or  lockouts 
within  the  last  two  years  and  if  so,  in  what  industries  and  what 
has  been  the  number  of  workers  affected? 

7.  What  has  been  the  result  of  the  most  important  strikes 
and  lockouts  that  have  taken  place  within  the  last  two  years? 

(Increased  wages,  shortening  of  hours  or  replacement  of  strik- 
ing workers  with  non-union  labor?) 

Enforced  idleness,  due  to  irregularity  of  employ- 
ment, is  one  of  the  most  serious  social  problems  to  be 
dealt  with.  Not  only  is  the  economic  life  of  the  individ- 
ual and  the  family  affected,  but  the  moral  and  social 
life  of  the  workers  is  endangered.  The  saloon,  the 
vice  resort  and  the  cheapest  types  of  amusements 
thrive  upon  irregular  employment,  while  the  rush 
season  endangers  the  health  of  the  workers  and  attracts 
a  nomad  population  of  wage  earners  who  are  soon 
thrown  upon  the  community  for  care  and  support. 
Rush  and  slack  industrial  seasons  are  due  to  a  lack 
of  intelligent  adjustment  between  supply  and  demand 
which  scientific  management  can  and  should  abolish. 

TEMPOEARY  AND  SIDE  EMPLOYMENT. 

Many  of  the  workers  abroad  and  some  of  the  recently 
arrived  immigrants  in  this  country  with  their  love 
of  the  out-of-doors  and  an  appreciation  of  the  oppor- 
tunity to  use  the  bounties  of  the  land,  are  adding  to 
their  daily  income  derived  from  work  in  the  mills 


TEMPORARY  AND  SIDE  EMPLOYMENT  65 

or  mines,  by  cultivating  a  small  tract  of  land  which 
constitutes  a  considerable  source  of  pleasure  and  self- 
education  besides  the  financial  gain.  This  practice 
is  not  to  be  found  either  among  the  native  born  mill- 
workers  or  among  the  immigrants  who  are  crowded 
into  the  tenement  districts  of  our  cities  and  towns. 
There  are,  however,  certain  sources  of  income  resulting 
from  supplementary  occupations  which  are  carried 
on  in  the  homes  during  evening  hours  which  may 
justly  be  considered  and  which  are  the  outcome  of 
unsteady  employment  and  in  many  instances  of  in- 
sufficient wages.  In  some  instances  desire  to  accumu- 
late wealth  or  secure  economic  independence  induces 
families  to  take  up  work  in  the  homes  so  that  all 
members  of  the  family  may  assist.  Child  labor  of  the 
most  objectionable  type  has  developed  in  connection 
with  home  industries. 

There  are  also  many  occupations  in  which  workers 
engage  during  times  of  employment  and  which  are 
beneficial  in  so  far  as  they  do  not  interfere  with  the 
integrity  of  the  family  and  the  home.  The  taking  of 
work  from  the  factories  into  the  home,  the  taking  of 
the  entire  family  into  berry  picking  camps  and  similar 
occupations  which  engage  the  attention  of  the  entire 
household  are  to  be  discouraged.  There  are,  how- 
ever, conditions  under  which  work  in  the  home  and 
in  the  fields  is  done  without  serious  danger. 

In  ascertaining  the  possibilities  and  character  of 
side  and  temporary  employment  the  following  ques- 
tions may  be  used  as  a  partial  guide: 

1.  How  many  of  the  working  people's  homes  present  oppor- 
tunities for  small  scale  farming? 

2.  What  is  the  character  and  extent  of  the  local  industries, 


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TEMPORARY  AND  SIDE  EMPLOYMENT  67 

and  what  legal  restrictions  are  placed  upon  such  industries? 
(Sweatshop  laws,  tenement  house  restrictions,  etc.) 

3.  Are  small  children  used  in  the  home  industries  and  to  what 
extent? 

4.  What  are  the  lines  of  extra  work  that  laboring  people  can 
undertake  aside  from  their  regular  daily  tasks? 

5  What  is  the  extent  of  the  practice  of  keeping  roomers  and 
boarders  in  private  families? 

Aside  from  these  questions  the  problem  of  the  local 
industrial  balance  should  be  considered  in  terms  of 
the  possibilities  for  finding  employments  in  nearby 
communities  in  times  of  industrial  depression  in  the 
home  city  or  town.  This  problem  of  migration  for 
purposes  of  finding  work  in  other  communities  rather 
than  in  the  home  town  or  city  has  its  advantages  and 
disadvantages  and  should  be  carefully  considered. 
In  the  communities  where  nearby  population  centers 
carry  on  industries  similar  to  those  of  the  home  com- 
munity it  is  often  possible  to  shift  workers  from  one 
to  the  other  without  impairing  the  family  ties  and 
with  considerable  advantage  both  to  employer  and 
employee.  But  when  migration  for  the  purpose  of 
finding  work  takes  the  members,  and  particularly  the 
head  of  the  family  to  distant  places,  it  is  often  done 
at  great  risk  to  the  home.  Many  cases  of  desertion 
and  the  numerous  instances  of  broken  up  families 
due  to  the  departure  of  the  head  must  be  attributed 
in  no  small  degree  to  this  type  of  labor  migration. 

As  far  as  possible  a  survey  should  concern  itself 
with  the  possibilities  of  shifting  labor  from  one  industry 
to  another,  and  within  reasonable  limits  investigations 
of  the  opportunities  presented  by  the  labor  markets 
of  nearby  communities  with  a  view  to  labor  migration 
and  exchange  should  be  carefully  carried  on. 


68  THE  SOCIAL  SURVEY 

PROTECTION  AGAINST  UNEMPLOYMENT. 

Protection  against  unemployment  has  developed 
slowly  in  American  industries  and  has  depended  largely 
upon  private  initiative  and  such  foresight  as  has  been 
customary  with  labor  organizations  in  the  nature  of 
insurance  against  illness  and  accident.  But  generally 
speaking  nothing  has  been  done  in  the  way  of  provid- 
ing compulsory  insurance  against  unemployment. 
Some  questions  in  connection  with  the  problems  of 
unemployment  may  help  to  show  what  the  problems 
are: 

1.  What  is  the  usual  number  of  unemployed  at  certain  periods 
of  the  year? 

2.  What  organizations  and  societies  provide  for  mutual  insur- 
ance against  enforced  idleness?. 

3.  What  is  the  number  of  working  people  who  have  deposits 
in  various  banks? 

4.  What  is  the  average  deposit  per  worker  in  savings  banks? 

5.  What  is  the  number  of  property  owning  workers  and  what 
is  the  average  valuation  of  property  per  worker? 

6.  Is  there  any  organization  which  lends  money  to  workers 
upon  notes  or  surety  on  a  reasonable  interest  without  intent  of 
gain? 

7.  Does  the  community  ever  borrow  money  for  public  works 
which  are  purposely  rushed  during  times  of  depression? 

8.  Does  the  City  or  State  maintain  a  free  employment  agency? 

9.  Is  a  city  woody ard  or  city  laundry  maintained  for  the  pur- 
pose of  giving  work  to  temporarily  unemployed? 

10.  Do  any  philanthropic  agencies  maintain  such  establish- 
ments? 

11.  What  is  the  full  employment  capacity  of  all  work-giving 
agencies  and  what   is  the  maximum  and  minimum  number  of 
unemployed  during  the  year? 

12.  Of  the  families  and  individuals  handled  by  the  charitable 
agencies,  private  and  public,  what  proportion  were  cases  due 
to  unemployment  caused  by  labor  conditions? 


SAFETY  IN  EMPLOYMENT  69 

It  will  be  found  that  many  of  the  answers  to  these 
questions  indicate  a  shortage  of  community  responsi- 
bility and  a  lack  of  adjustment  that  commands  atten- 
tion. 

SAFETY  IN  EMPLOYMENT. 

The  most  wasteful  and  most  criminal  negligence  in 
the  protection  of  our  human  resources  is  to  be  found 
in  the  flagrant  absence  of  proper  protection  of  the 
workers  in  the  pursuit  of  their  daily  labor  in  mill  and 
mine,  and  in  many  of  the  walks  of  life  in  which  millions 
of  workers  are  daily  taking  their  risks.  Protection 
and  prevention  of  industrial  accidents  have  recently 
awakened  public  interest.  The  failure  to  secure  proper 
legislation  and  volunteer,  action  for  the  protection  of 
the  workers  against  industrial  accidents  has  been  due 
not  only  to  employers  but  also  to  the  workers  who  fear 
the  extra  burden  of  insurance.  The  public  mind, 
however,  is  coming  rapidly  to  realize  the  importance 
not  only  of  insurance  against  accidents  and  death, 
but  that  the  prevention  of  accidents  is  of  the  most 
momentous  importance  to  modern  industry.  Current 
discussion  of  the  subject  found  in  the  public  press, 
the  frequent  references  to  it  from  the  pulpit  and  the 
professor's  chair  and  the  agitations  carried  on  in  this 
direction  by  leaders  in  social  and  political  life,  clearly 
show  that  public  sentiment  is  in  favor  of  insuring 
protection  and  safety  to  the  workers. 

In  connection  with  this  topic  questions  such  as 
these  might  be  asked  with  profit: 

1.  Is  there  any  compulsory  insurance  law  providing  for  com- 
pensation in  case  of  industrial  accidents  resulting  in  disability 
or  death  and  if  so  what  are  the  provisions? 


70 


THE  SOCIAL  SURVEY 


Electrical  contracting 


Lumber  and  planing  mills 
80 

Vontllating  and  heatin 

Jl 

Plumbing  and  steam  fittln 


Sheet  netal  work  and  roofi 


General  contracting 
50 


Brick  stone  and  camant  work 


SECTIONS  IN  OUTLINE  REPKESENT  PERCENTAGE  OF  MEN  EMPLOYED 

AND  SECTIONS  IN  BLACK  PERCENTAGE  OF  MEN  UNEMPLOYED  IN 

EACH   OF  NINE  BUILDING  INDUSTRIES  AT  A   TIME  WHEN 

EACH  INDUSTRY  SHOWED  THE  LARGEST  PERCENTAGE 

OF    UNEMPLOYMENT. 

From  the  volume  on  Building  Trades  by  Frank  L.  Shaw,   of  the 
Cleveland  Educational  Survey. 


SAFETY  IN  EMPLOYMENT  71 

2.  What  is  the  status  of  legislation  providing  for  proper  pro- 
tection of  machinery? 

3.  Under  whose  jurisdiction  is  the  protection  of  machinery 
enforced? 

4.  What  is  the  number  and  nature  of  industrial  accidents  that 
have  occurred  during  the  last  year  or  two? 

5.  Are  the  laws  concerning  the  protection  of  machinery  en- 
forced properly? 

6.  What  amounts  have  been  paid  to  industrial  accident  victims 
by  manufacturers,  insurance  companies,  charity  societies,  lodges 
and  mutual  aid  societies  within  the  last  year  or  two? 

7.  In  what  industries  have  most  of  the  accidents  occurred  and 
what  has  been  the  age  and  nationality  of  the  persons  injured  or 
killed? 

8.  How  many  persons  wholly  dependent  upon  injured  workers 
have  been  affected?     What  are  their  ages  and  social  condition? 

9.  What  have  been  the  causes  of  the  different  accidents  and  to 
whom  have  they  been  attributed? 

10.  How  many  of  the  industrial  establishments  maintain  an 
emergency  department? 

Many  other  parallel  questions  are  sure  to  appear 
in  different  localities  which  might  be  followed  up  with 
profit,  but  the  general  lines  are  above  suggested. 

WELFARE  WORK. 

A  keen  appreciation  of  welfare  work  done  under  the 
auspices  of  particular  establishments  for  the  benefit 
of  the  employees  has  been  realized  among  many  of 
the  leading  captains  of  industry  and  the  results  have 
shown  gains  not  only  in  improved  relations  between 
employer  and  employee  but  also  in  terms  of  increased 
efficiency  among  workers.  An  inventory  of  welfare 
work  done  by  various  local  establishments  may  be 
secured  by  gathering  facts  concerning  the  following: 

1.  How  many  of  the  industrial  establishments  maintain  for  the 
use  of  their  employees  a  lunch  room,  rest  room,  baths,  meeting 


72  THE  SOCIAL  SURVEY 

rooms,  club  rooms,  playgrounds,  settlement  houses,  a  social  secre- 
tary for  individual  work  particularly  with  girls,  etc.,  and  what  is 
the  character  of  each? 

2.  What  establishments  have  an  apprentice  system  for  the 
training  of  skilled  workers  and  what  class  of  persons  are  usually 
selected  as  apprentices? 

3.  Is  there  a  pension  fund  connected  with  any  of  the  industrial 
establishments  and  what  are  its  conditions? 

4.  What  establishments  maintain  a  system  of  volunteer  insur- 
ance or  free  medical  aid  in  case  of  sickness? 

5.  Are  there  any  special  funds  provided  by  industrial  establish- 
ments for  social  service  work  to  be  carried  on  for  the  benefit  of 
the  community  at  large? 

The  above  outline  of  an  industrial  survey  is  far 
from  being  complete,  but  the  questions  were  formulated 
with  the^aim  in  view  of  suggesting  in  the  mind  of  the 
reader  the  vital  industrial  problems  which  have  an 
immediate  effect  upon  the  community  and  the  working 
people. 

Welfare  work  carried  on  by  industrial  establish- 
ments has  frequently  created  antagonism  and  resent- 
ment among  employees.  Lack  of  proper  management 
and  a  narrow  point  of  view  may  defeat  the  best  efforts 
of  an  employer.  The  effect  that  such  service  has  upon 
the  workers  should  be  carefully  studied. 

LABOR   ORGANIZATIONS   AND   LABOR   PROBLEMS. 

So  far  we  have  been  considering  the  relation  of  the 
industry  to  the  work.  The  relation  of  the  worker  to 
his  industry,  however,  represents  an  entirely  different 
set  of  conditions  and  problems. 

With  a  flexible  labor  market  such  as  this  country 
presents,  the  constant  changes  in  industrial  methods 
and  types  of  workers,  the  labor  elements  in  this  country 
liave  found  it  to  their  advantage  to  organize  against 


LABOR  ORGANIZATIONS  73 

the  exploitation  that  free  labor  competition  necessarily 
produces.  In  the  carrying  out  of  a  social  survey  it  is 
essential  to  ascertain  the  extent  and  character  of  labor 
organization  that  exists  in  the  community  and  to 
what  extent  they  attempt  to  deal  with  the  local  labor 
problems. 

LABOR  ORGANIZATIONS.  In  the  study  of  labor 
organizations  it  is  necessary  to  ascertain  the  actual 
distribution  of  the  labor  elements  in  the  community 
as  follows: 

1.  What  is  the  distribution  of  wage  earners  in  the  community 
according  to  age,  sex,  nationality,  color  and  occupation? 

2.  Which  of  the  occupations  are  organized  into  labor  unions 
and  what  is  the  membership  of  these  unions? 

3.  What  are  the  differences  in  the  wages  of  organized  as  com- 
pared with  unorganized  trade? 

4.  In  what  proportion  are  the  foreign  labor  elements  dis- 
tributed in  the  organized  as  compared  with  the  unorganized 
trades? 

5.  What  has  been  the  history  of  the  important  organizations 
and  what  are  their  principles,  rules  and  customs? 

6.  What  is  the  character  of  the  leadership  that  the  unions  are 
dependent  upon? 

7.  What  is  the  attitude  of  the  unions  toward  labor  legislation 
regarding  woman  and  child  labor,  industrial  insurance,  factory 
sanitation,  etc.? 

8.  To  what  extent  have  the  labor  unions  been  recognised  by 
the  industrial  establishments  in  the  community  and  what  con- 
tentions have  taken  place  within  the  last  ten  years  for  the  recogni- 
tion of  the  unions? 

9.  Are  the  dividends  and  general  financial  standing  of  the 
manufacturing  plants  that  do  not  recognise  unions  on  the  average 
liigher  or  lower  than  in  plants  in  which  unions  are  recognised? 

LABOR  PROBLEMS.  The  labor  problems  may  be 
divided  into  two  distinct  groups :  namely,  the  problems 
of  the  employer  and  the  problems  of  the  employee. 


74 


THE  SOCIAL  SURVEY 


Under  some  conditions  the  problems  of  the  employer 
are  the  same  as  the  problems  of  the  employee,  as  is 
the  case  when  general  industrial  depression  sweeps 
the  country,  but  as  a  rule,  while  the  problems  of  one 


Sep.  Oct.  Nov.  Dae.  Jan.  Feb.  Mar.  Apr.  May  June  July  Aug. 


Printing  trades 
Building  trades 


PERCENTAGE  OF  MEN  IN  BUILDING  TRADES  AND  IN  THE  PRINTING 
TRADES  EMPLOYED  EVERY  MONTH  DURING  THE  YEAR. 

The  largest  number  in  any  one  month  is  taken  as  a  basis  and  is 

represented  by  100  per  cent. 
From  the   Printing    Trades  volume  of   the   Cleveland    Educational 

Library. 

affect  the  other,  they  are  not  generally  different   in 
the  effect  upon  the  two  groups  of  interests.1 

A  few  lines  of  inquiry  relating  to  labor  problems  may 
be  considered  on  the  basis  of  the  following  questions: 

1.  Is  the  labor  supply  in  the  community  commensurate  with 
the  labor  needs,  or  is  there  an  oversupply  of  labor  and  a  shortage 
of  employment  opportunities? 

2.  Is  there  a  shortage  of  labor  in  one  field  and  an  over  supply 
in  another? 


!Fpr  most  communities  this  information  may  be  obtained  by  con- 
sulting the  last  Federal  or  State  Census. 


LABOR  PROBLEMS  75 

3.  Are  any  steps  being  taken  to  meet  the  needs  for  workers 
especially  trained  for  the  local  trade,  or  is  the  community  depend- 
ing upon  importation  of  such  labor  supply? 

4.  Are  the  local  industries  mainly  low  wage  industries? 

5.  Are  the  industries  affording  employment  opportunities  for 
both  sexes  and  all  working  ages? 

6.  Are  provisions  for  arbitration,  in  case  of  labor  disputes,  pro- 
vided by  law  or  agreement? 

7.  What  disputes  have  recently  been  settled  on  the  basis  of 
these  provisions  and  how  effective  have  these  settlements  been 
in  meeting  the  needs  of  labor  employers  and  employees? 

8.  What  has  been  the  attitude  of  the  local  authorities  toward 
labor  troubles  both  from  the  point  of  view  of  endeavoring  to 
effectuate  a  settlement  or  in  quelling  disturbances? 

The  above  questions  do  not  lay  claim  to  having 
covered  the  field,  but  they  are  sufficient  to  lead  the 
surveying  forces  into  the  subject,  which  will  unfold 
its  intricate  ramifications  and  develop  a  broadening 
interest  and  sympathy  and  understanding  in  relation 
to  one  of  the  most  complex  social  problems  of  our 
industrial  life. 


HEALTH. 

THE  last  century  has  been  a  period  of  human 
achievement;  the  present  century  promises  to  be 
one  of  human  improvement.  We  have  been  hoarding 
knowledge  and  wealth  and  boasting  of  what  the  human 
mind  is  capable  of  knowing  and  doing;  we  are  now 
ready  to  use  this  wealth  and  knowledge  and  exper- 
ience for  the  general  improvement  of  the  race  by  in- 
creasing its  capacity  for  work,  service  and  happiness. 
In  a  word,  we  are  turning  from  the  objective  to  the 
subjective  of  human  society. 

The  study  of  health  may  be  divided  into  three 
important  factors,  namely,  the  conditions  of  health 
that  exist,  the  factors  that  determine  the  condition 
of  health  and  the  laws  intended  to  promote  health. 
The  first  relates  to  mortality  and  morbidity,  the  second 
to  the  various  causes  of  sickness  and  death  and  the 
last  to  the  legislative  control  of  conditions  that  deter- 
mine health. 

MORTALITY. 

The  first  prerequisite  of  an  intelligent  health  survey 
is  the  ascertaining  of  the  health  conditions  in  terms 
of  measurable  quantities  expressed  in  statistical  form. 

In  most  of  the  registration  cities  statistical  data  for 
the  accurate  study  of  health  conditions  are  available. 
There  are  cases,  however,  where  the  negligence  of 
the  health  authorities  renders  such  study  impossible. 
In  such  cases  it  is  necessary  to  prepare  for  the  survey 
at  least  one  year  in  advance,  in  order  to  record  the 
mortality  and  morbidity  rate  and  furnish  a  basis  of 

76 


MORBIDITY  77 

judgment  as  to  the  status  of  the  health  of  the  com- 
munity for  at  least  one  year.  Such  questions  as  these 
should  be  answered  in  the  preparation  of  a  survey 
of  health  conditions : 

1.  What  is  the  death  rate  from  all  causes  in  the  community 
according  to  ages,  sex  and  nationality  of  those  who  died  within 
a  period  of  one  or  two  years? 

2.  What  is  the  death  rate  by  nationality,  age  and  sex  in  other 
communities  of  the  same  size? 

3.  What  are  the  causes  of  deaths  by  nationality  or  race,  by 
age  and  sex  and  which  of  them  are  preventable? 

4.  What  is  the  death  rate  among  infants  under  one  and  under 
five  years  of  age,  by  nationality  and  sex? 

5.  Which  sections  of  the  community  show  the  highest  death 
rates  and  which  the  lowest? 

6.  Are  deaths  reported  accurately  to  the  authorities  and  are 
the  facts  published  regularly  and  intelligently? 

7.  Are  the  reports  discussed  in  the  daily  press  and  do  they 
attract  attention? 

8.  How  does  the  death  rate  in  your  community  compare  with 
the  death  rate  in  other  communities  and  the  state? 

9  What  proportion  of  the  deaths  were  due  to  preventable 
causes,  either  accidents  or  diseases? 

10.  What  proportion  of  deaths  were  due  to  contagious  diseases? 

MORBIDITY. 

The  evils  and  suffering  caused  by  disease  when  seen 
from  the  point  of  view  of  the  family,  the  danger  to 
the  community  due  to  contagion,  the  burden  upon 
the  city  and  state  entailed  by  hospital  care  and  upon 
charitable  societies  dealing  with  the  conditions  result- 
ing from  sickness  among  the  poor,  are  more  serious 
even  than  the  sad  and  often  unnecessary  deaths. 

The  work  of  preventing  diseases  depends  very 
largely  upon  the  distribution  of  these  diseases  accord- 
ing to  location  and  a  proper  determining  of  the  causes. 


78  THE  SOCIAL  SURVEY 

To  provide  medical  care  and  hospital  facilities  is 
among  the  first  duties  of  the  community,  but  to  ascer- 
tain and  remove  causes  of  disease  is  the  only  modern 
way  of  serving  the  interests  of  health.  The  most 
elaborate  system  of  hospitals  and  the  most  liberal 
provisions  for  medical  care  of  the  sick  are  only  an 
indication  of  our  failure  to  prevent  disease  and  death 
before  it  makes  its  victims.  Preventive  medicine  and 
sanitary  engineering  should  replace  our  hospitals  and 
the  drug  industry,  and  our  advancement  in  public 
health-work  should  be  measured  by  the  degree  of  this 
displacement. 

The  following  should  be  ascertained  in  a  study  of 
morbidity : 

1.  What  was  the  number  of  persons  ill  with  contagious  dis- 
eases and  what  was  the  character  of  the  disease  during  the  last 
year? 

2.  What  epidemics  have  occurred  in  the  last  five  years  in  the 
community  and  have  causes  attributed  to  them  been  removed? 

(In  statistical  tables  deaths  from  preventable  diseases  should 
be  considered  separately.) 

3.  What  has  been  the  number  of  victims  of  the  epidemic  and 
how  many  recovered? 

4.  How  many  persons  have  received  free  treatment  in  hospitals 
and  dispensaries  in  the  last  year  and  for  what  diseases? 

5.  Do  any  particular  industries  show  a  larger  number  of  cases 
of  sickness  than  others,  what  is  the  character  of  the  diseases  and 
are  they  contagious  or  not? 

6.  How  many  children  have  absented  themselves  from  school 
during  the  year  on  account  of  illness? 

7.  Have  the  schools  been  closed  during  the  year  on  account  of 
epidemics  and  for  how  long? 

8.  In  what  trades  have  women  shown  the  largest  amount  of 
illness  and  irregularity  of  work? 

9.  What  have  been  the  prevailing  contagious  diseases  among 
children  and  infants  during  the  last  year? 


BABY'S  FOES 


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ARE  KILLED  BY 

ITHERS 

LIFE  BEARING  SCARS  MABE  BY  THEM, 


80  THE  SOCIAL  SURVEY 

10.  What  has  been  the  distribution  of  these  diseases  according 
to  locality,  type  of  feeding,  seasonal  changes,  etc.? 

With  the  material  accumulated  in  the  investigation 
of  the  questions  as  above  indicated,  the  survey  has 
reached  the  point  when  the  consideration  of  the  more 
specific  problems  of  ill  health  and  mortality  may  be 
undertaken. 

HOUSING. 

The  housing  of  the  people  is  so  vital  a  factor  in 
determining  the  health  of  the  community  and  its 
influence  is  so  closely  connected  with  the  moral  and 
social  atmosphere  in  which  the  people  must  live  that 
it  deserves  special  attention. 

In  dealing  with  housing  conditions  and  the  evils 
resulting  therefrom,  we  find  that  resistance  to  disease, 
infant  mortality,  longevity  and  industrial,  moral  and 
social  efficiency  may  be  unhesitatingly  drawn  along 
the  boundaries  that  divide  the  community  according 
to  the  condition  of  the  homes  and  the  living  conditions 
which  they  render  possible.  This  being  the  case,  it 
is  of  the  utmost  importance  to  ascertain  the  housing 
conditions  of  a  community  in  order  to  ascertain  the 
forces  working  against  proper  housing  and  to  make 
possible  the  outlining  of  constructive  housing  policies 
consistent  with  the  local  facts. 

The  far  reaching  influences  of  bad  housing  conditions 
must  appeal  therefore  to  those  who  are  interested  in 
the  welfare  of  the  community  for  its  own  sake,  as  well 
as  to  those  who  calculate  their  social  service  in  terms 
of  increased  efficiency  in  the  daily  tasks  of  the  workers, 
and  savings  in  financial  responsibility  both  towards 
the  city  and  the  philanthropic  agencies  of  the  com- 
munity. The  work  of  ascertaining  housing  conditions 


SURFACE   DRAINAGE,  A   MENACE  TO   HEALTH  FOUND  IN  MOST 
AMERICAN  CITIES. 


CONDITIONS  OF  DWELLINGS  81 

of  the  people  should  therefore  be  done  with  the  utmost 
care  and  the  results  weighed  in  terms  of  health  as  well 
as  in  terms  of  moral  standards  and  industrial  efficiency. 

The  most  serious  defects  of  housing  reform  in  Amer- 
ica are  the  assumptions  that  the  housing  problem  is 
wholly  distinct  from  other  problems,  and  that  it  in- 
volves essentially  the  question  of  a  problem  of  sanitary 
accommodations.  That  the  absence  of  town  planning 
and  the  general  environmental  conditions  outside 
of  the  home  coupled  with  inflexible  and  frequently 
antiquated  laws  and  practices  are  the  real  menace  of 
the  home,  must,  however,  be  realized. 

The  sanitary  aspects  of  the  housing  problem  should 
be  considered  along  the  following  lines: 

CONDITIONS  OF  DWELLINGS 

1.  Is  the  locality  a  community  of  homes  or  of  three  or  four  or 
more  family  houses  and  what  is  the  number  of  each  type? 

2.  What  is  the  average  porportion  between  rental  and  family 
income?     (If  this  cannot  be  ascertained,  the  rental  per  tenement 
by  number  of  rooms  in  some  characteristic  sections  should  be 
considered.) 

3.  Are  the  families  crowded  in  small  tenements  and  what  is 
the  extent  of  the  crowding?     (Number  of  persons  per  room, 
crowding  in  bedrooms,  etc.) 

4.  How  frequently  are  roomers  taken  in  to  piece  out  rents? 

5.  Is  the  water  supply  in  the  homes  of  good  quality  and  suffi- 
cient for  the  use  of  the  families? 

6.  Is  there  a  sewer  system  and  is  it  connected  with  the  dwell- 
ings in  all  parts  of  the  city?      If  not,  what  is  the  number  of 
dwellings  not  connected  and  the  number  of  families  and  individ- 
uals affected? 

7.  What  is  the  character  of  the  toilets;    are  they  located  in 
apartments,  cellars,  halls,  basements  or  yards  and  are  they  con- 
nected with  the  sewer?     (Secure  facts  concerning  each.) 

8.  Are  toilets  used  by  one  or  more  families  each  and  to  what 
extent  is  overcrowding  in  toilet  use  prevalent? 

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ROOMING  HOUSES  83 

9.  What  types  of  toilet  ventilation  are  prevalent? 

10.  To  what  extent  are  bathrooms  provided  in  the  poorer 
sections  of  the  community? 

11.  Is  household  refuse  removed  by  the  city  and  what  is  the 
method  and  frequency  of  removal? 

12.  How  frequent  are  windowless  rooms  in  dwellings? 

13.  How  frequently  are  rooms  dark  because  of  proximity  of 
buildings,  lighting  through  airshafts  or  narrow  courts? 

14.  Are  yards  provided  in  tenements  and  what  are  the  prevail- 
ing sizes? 

ENVIRONMENT  OF  DWELLING  HOUSES 

1.  What  is  the  average  width  of  the  tenement  streets  and  how 
wide  are  the  sidewalks? 

2.  Are  the  streets  swept,  watered,  flushed  or  oiled  in  the 
tenement  districts  and  if  so,  how  often  and  by  what  methods? 

3.  Are  the  streets  paved  and  what  is  the  type  of  pavement  in 
tenement  districts? 

4.  Are  playgrounds  provided  in  the  crowded  districts? 

5.  Are  street  car  lines  common  in  these  districts  and  is  the  use 
of  the  streets  by  children  dangerous? 

6.  Are  saloons  common  in  the  residential  districts  and  to 
what  extent  are  they  found  in  buildings  occupied  by  private 
families? 

7.  Are  houses  of  prostitution  or  prostitutes  permitted  in  the 
neighborhood  of  or  within  dwellings? 

8.  Are  the  dwellings  in  the  proximity  of  the  factories  and  are 
they  affected  by  smoke,  gases  or  other  by-products  which  might 
be  injurious  to  health? 

9.  Are  there  in  the  proximity  of  dwellings  swamps  or  lowlands 
which  breed  mosquitoes  or  produce  offensive  odors? 

10.  Are  noises  prevalent  in  the  dwelling  districts  that  could 
be  reduced  or  avoided? 

11.  Are  abandoned  buildings  common  in  the  neighborhood  and 
are  they  protected  against  improper  use  by  tramps  and  persons 
of  questionable  character? 

ROOMING  HOUSES. 

With  the  growth  of  industries  and  the  migration 
of  labor  from  one  center  to  another  has  come  the 


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ROOMING  HOUSES  85 

problem  of  housing  persons  living  away  from  their 
families,  which  in  "many  cities  has  assumed  large  pro- 
portions and  frequently  constitutes  a  serious  social 
problem.  The  rooming  houses  and  the  hotels  are  the 
places  which  largely  provide  homes  for  this  class  of 
population  and  the  consideration  of  these  hotels  and 
rooming  houses  should  receive  attention  in  the  body 
of  a  housing  survey.  The  problems  connected  with 
this  type  of  housing  can  be  stated  in  this  manner: 

1.  What  is  the  total  population  by  sex  living  away  from 
home? 

2.  What  is  the  number  of  rooming  houses  connected  with  priv- 
ate homes? 

3.  What  is  the  number  of  hotels  and  private  rooming  houses 
and  what  is  the  method  used  in  conducting  them? 

4.  Are  they  controlled  by  local  or  state  legislation,  what  is 
the  character  of  this  legislation  and  what  authority  enforces  it? 

5.  Are  there  any  special  rooming  houses  provided  by  philan- 
thropic agencies  and  what  is  their  capacity? 

6.  Are  there  houses  or  tenements  in  which  men  keep  house 
without  women  and  what  is  their  number  and  condition?  . 

7.  What  is  the  sanitary  condition  of  the  rooming  houses  ancl_L-' 
hotels?     (Use  as  a  basis  for  study  the  questions  on  conditions  of    ' 
tenement  houses.) 

GENERAL  CONSIDERATIONS. 

So  far  I  have  dealt  with  the  physical  conditions  of 
the  existing  homes  in  relation  to  the  population  of 
the  community.  This,  however,  represents  only  a 
small  part  of  the  larger  problem.  The  facts  gathered 
on  the  basis  of  the  above  suggestions  are  always  more 
or  less  in  the  nature  of  a  muckraking  process  and  most 
communities  are  generously  provided  with  material 
for  such  a  process. 

A  housing  survey,  however,  is  not  a  muckraking 
process.  The  display  of  filth  and  congestion,  the 
nuisances  of  broken  roofs,  doors  and  windows,  the 


86  THE  SOCIAL  SURVEY 

disease  breeding  toilets  and  the  sewage  that  so  frequent- 
ly flows  through  our  city  streets  are  well  fitted  for  the 
sensational  exploitation  that  housing  reform  has  been 
subjected  to  during  recent  years.  High  phrases  of 
crime,  disease,  and  death  have  become  an  integral 
part  of  the  vocabulary  of  the  housing  agitator  and 
tomes  upon  tomes  of  housing  laws,  some  practical  and 
some  wholly  unnecessary,  have  invaded  our  statute 
books.  The  word  slumming  has  become  almost  syn- 
onymous with  a  housing  investigation  and  a  housing 
report  a  verbal  and  pictorial  display  of  all  that  is 
repellant  in  the  form  of  human  habitation  and  sur- 
roundings in  our  midst.  We  have  been  passing  through 
the  hysterical  period  of  housing  reform  and  the  results 
accomplished  fully  measure  up  to  our  -methods. 

An  honest  and  scientific  housing  survey  is  more  than 
a  photographing  of  slum  conditions.  It  is  a  faithful 
/picture  of  the  causes  of  bad  housing,  of  its  effects  in 
terms  of  human  life  and  human  efficiency,  of  its  cost 
to  the  individual  and  to  the  community  at  large  and 
above  all  to  be  a  logical  result  it  must  be  a  programme 
of  action  that  is  consistent  with  the  means  of  the  people 
whom  we  are  endeavoring  to  benefit  and  in  harmony 
with  their  standards,  their  social  life  and  personal 
aspirations. 

Casual  examinations  of  the  five  score  and  more 
housing  surveys  that  have  been  carried  out  in  many 
cities  throughout  the  United  States  show  them  to  be 
mainly  social  studies  limited  in  scope  to  existing  evils 
or  what  might  be  called  the  pathological  aspect  of  the 
problem.  The  remedies  are  almost  universally  ex- 
pressed in  terms  of  legislation,  regulation,  inspection 
and  education  which  deal  with  the  physical  factors 


GENERAL  CONSIDERATIONS  87 

of  individual  buildings  and  the  methods  of  improving 
them  by  reconstruction  or  destruction.  Here  our  sur- 
vey work  seems  to  come  to  a  standstill.  Most  of  us 
can  distinguish  between  normal  and  subnormal  con- 
ditions and  all  those  interested  in  the  improvement 
of  housing  conditions  are  nearly  agreed  upon  what  the 
minimum  standards  should  be. 

A  housing  survey,  however,  should  be  more  com- 
prehensive than  the  work  that  housing  workers  have 
generally  been  permitted  or  were  able  to  do. 

A  study  of  conditions  without  reference  to  causes 
and  effects  cannot  be  constructive.  In  housing  reform 
our  task  is  not  so  much  in  the  ascertaining  of  existing 
conditions  as  in  the  relation  that  these  conditions  have 
to  certain  fundamental  economic,  social  and  municipal 
factors  that  render  radical  changes  impossible  or  diffi- 
cult. The  fundamentals  of  an  intensive  housing  survey, 
which  is  the  essential  prerequisite  of  all  other  social 
surveys,  are  as  follows: 

1.  Character  of  the  home  as  related  to  the  welfare 
of  the  family. 

2.  Relationship  of  this  home  to  the  community' 
activities  upon  which  depend  the  economic  and 
social  life  of  the  people,  and 

3.  The  cost  of  the  accommodations  as  related  to 
the  earning  capacity  of  the  occupant  and  rental 
or  purchase  prices. 

A  comprehensive  housing  survey  that  neglects  these 
three  aspects  of  the  problem  is  incomplete  and  from 
the  point  of  view  of  constructive  reform  without  value. 
So  far  surveys  have  dealt  with  health,  comfort  and 
privacy.  The  lodger  evil  has  been  added  to  many  of 


88  THE  SOCIAL  SURVEY 

the  serious  problems  that  were  structural  in  character. 
The  only  aspect  of  the  sanitary  problem  that  has  been 
overlooked  is  the  study  of  the  causes  of  existing  con- 
ditions. Had  we  been  eager  to  examine  into  the  causes 
of  bad  housing  conditions,  we  would  have  been  led  to 
the  examination  of  some  of  the  more  fundamental 
questions  of  transit,  city  planning,  taxation,  etc. 
^  The  following  appears  to  me  as  a  fairly  complete 
outline  of  the  causes  of  bad  housing: 

CAUSES  OF  THE  HOUSING  PROBLEM. 

a.  Population. 

1.  Immigration  as  represented  by  the  rate  of  in- 
crease in  population  both  native  and  foreign. 

2.  Industrial  growth  without  community  prepara- 
tion, as  represented  by  rapidly  growing  industries 
wholly  out  of  proportion  with  the  rate  of  home 
building  in  the  community. 

3.  Race  factors,  as  represented  by  the  tendency  to 
segregate  the  colored  race  into  quarters  inad- 
equately provided  with  horrlqs  for  the  type  and 
the  number  of  people  to  by  accommodated. 

4.  Ownership,  or  the  lack  of  it,  due  to  changing 
industrial  conditions,  tenement  building^ 

b,  Municipal  administration. 

1.     Enforcement    of    law    through    well    organized 
municipal  departments. 

f  Sewage  disposal  facilities. 
2        I  Water  supply. 

1  Waste  removal  and  street  cleaning. 
[  Streets,  Park  Department. 

3.     Municipal  building  of  cheap  homes  rentable  to 
subnormal  families  at  low  rental  rates. 


CAUSES  OF  THE  HOUSING  PROBLEM  89 

4.  Taxation  system  as  expressed  in  the  exemption 
from  taxes  of  cheap  wage  earners'  homes  or  in  the 
reduction  of  such  taxes. 

c.  Legislation. 

1.  Municipal  regulation  dealing  with  safety  and 
health  regulation. 

2.  State  laws  dealing  with  the  fundamental  law  of 
building. 

3.  National,  dealing  with  tariff  on  imported  mate- 
rials, transportation  rates  as  regulated  by  Inter- 
state Commerce  Commission,  affecting  transpor- 
tation of  materials,  etc. 

d.  Neighborhoods  and  Community  Changes. 

1.  Zoning  affecting  the  location  of  objectionable 
factories  or  other  activities. 

2.  Industrial  changes  such  as  the  shifting  of  indus- 
tries from  one  section  to  another  and  interfering 
with  the  home  life  of  the  people. 

3.  Shifting  of  population  due  to  changes  in  the 
racial,  natural  or  social  character  of  the  people 
in  relation  to  a  given  locality. 

e.  Natural  Difficulties. 

1.  Drainage. 

2.  Building  difficulties  due  to  topography. 

3.  Grades. 

4.  Climatic  conditions  determining  materials  and 
durability. 

f.  City  planning. 

1.  Street  layout. 

2.  Transit. 

3.  Zoning  and  open  spaces. 


90  THE  SOCIAL  SURVEY 

It  is  not  necessary  in  this  brief  chapter  to  deal  with 
every  factor  here  outlined.  The  elements  of  popula- 
tion and  industrial  growth,  however,  are  of  such  mo- 
mentous importance  that  I  must  pause  for  a  moment 
to  deal  with  them. 

Immigration  and  industrial  growth  so  overload  the 
housing  capacity  of  many  of  our  communities  as  to 
create  congestion  in  existing  buildings  and  stimulate 
the  construction  of  dwellings  which  in  sanitary  stand- 
ards and  architectural  construction  violate  every 
requirement  of  human  comfort,  health  and  good  taste. 
" Spasmodic  booms"  and  untruthful  advertising  of 
the  advantages  of  certain  communities  are  frequently 
responsible  for  such  conditions. 

A  housing  survey  that  analyzes  the  causes  of  these 
increases  in  population  and  the  character  and  location 
of  industrial  plants  will  show  that  owing  to  lack  of 
foresight  on  the  part  of  manufacturers  and  the  local 
governmental  bodies,  they  are  located  at  points  where 
congestion  is  made  necessary  and  adequate  distribution 
of  the  population  impossible. 

An  honest  statement  of  the  facts  relating  to  the 
methods  of  distributing  our  industries  and  the  difficul- 
ties of  making  them  accessible  to  the  workers  will  be 
of  the  utmost  value  to  the  community  as  it  will  show 
the  failures  of  the  local  transit  facilities  as  to 
time,  cost  of  transportation,  and  convenience.  Indus- 
trial growth  implies  growth  of  population  which  must 
meet  the  demand  for  labor.  This  demand  for  labor 
is  generally  responded  to  by  the  newly  arrived  foreign 
elements,  which  owing  to  their  racial  and  economic 
standards,  encouraged  by  the  lack  of  adequate  housing 
facilities,  create  housing  problems  of  the  most  serious 


GOVERNMENTAL  FACTORS  91 

kind  where  healthful  and  comfortable  conditions  existed 
before. 

A  very  large  share  of  our  housing  problems  is  due 
to  a  forced  industrial  and  commercial  progress  wholly 
out  of  harmony  with  the  social  organization  and  equip- 
ment of  our  communities. 

The  most  accurate  conception  of  the  governmental 
factors  dealing  with  housing  may  be  gained  from  an 
analysis  of  the  functions  which  the  Government  does 
or  may  exercise  in  the  control  of  housing  conditions 
both  in  the  form  of  legal  provisions  and  in  the  form  of 
administrative  activities  affecting  the  housing  of  the 
people. 

I  have,  therefore,  outlined  the  functions  that  the 
local,  state  and  federal  governments  may  exercise  in 
the  development  of  proper  housing  conditions  and 
in  the  control  of  minimum  standards.  This  outline 
is  as  follows: 

I.    PROMOTIVE  GOVERNMENTAL  FACTORS. 

Banking  laws  such  as  Germany  provides  whereby 
workers  can  obtain  loans  at  low  rates  of  interest 
for  use  in  building  homes. 

Municipal  or  state  loans  devoted  to  the  use  of 
home  building  through  financial  aid  given  either 
to  individuals  or  to  organizations. 
Exemption  from  taxation  of  certain  types  of  most 
needed  homes. 

Free  or  cheap  land  made  possible  by  purchases 
of  large  tracts  of  land  controlled  by  the  municipal- 
ity and  devoted  to  housing  needs. 
Free  or  cheap  transit. 


•OTY-  OP -LIVERPOOL 

BEVINGTON  - 


PLAN  SHEWING  AREA  BEFORE  DEMOLITION 

MAP  SHOWING  BLOCK  CONGESTION  PRIOR  TO  BLOCK  RECONSTRUCTION 
IN  LIVERPOOL. 


CITY    OP   LIVERPOOL 
BEVINGTON 


PLAN  SHEWING  AREA  AS  REBUILT,   1912. 


SHOWING  BLOCK  RECONSTRUCTION  OF  CONGESTED 
IN  LIVERPOOL. 


AREA 


94  THE  SOCIAL  SURVEY 

Architectural  engineering  service  to  builders  fur- 
nished by  municipality  free  of  charge. 
Municipal  building. 

Tariff  regulation  affecting  building  materials. 
Destruction  of  buildings  unfit  for  habitation. 
II.     RESTRICTIVE  GOVERNMENTAL  FACTORS. 
Buildings. 

a.  Sanitation. 
Light. 
Ventilation. 

~.       ..          /Water  supply, 
Cleanliness  }   .  ,   . .         . 

I  Accumulation  ot  waste, 

Height,  Width  of  streets. 

Lot  Areas. 

Proximity  of  buildings. 

f  Toilets, 
Waste  disposal  \  Sewage, 

I  Other  waste. 

b.  Safety. 
Safety  exits. 

,.,.       f  Fire  proofing, 

I  Combustible  Materials. 

c.  Moral 

TJ  .          /lodgers, 
Privacy  -s  ,. 

I  overcrowding. 

Business  and  family  use. 
Arrangement  of  rooms. 

fProstitution, 

~,  .  I  Liquor, 

Character  of  occupancy^  . 

[Gambling. 
Surroundings. 


HOUSING  FACTORS  95 

a.  Sanitation. 
Cleanliness  of  streets. 
Shade. 

Proximity  to  Parks. 
Noxious  gases  from  manufactures. 
f  Bad  property, 

.  ,.  Open  sewers. 

Sources  of  disease  •{  c 

Stagnant  water, 

[  Pumps,  etc. 
Unnecessary  noises. 

b.  Safety. 
Traffic. 

Dangerous  use  of  streets. 
Sources  of  fire. 
Lighting. 

c.  Moral. 

Amusement  centers. 
Prostitution. 
Gambling. 
Liquor  traffic,  etc. 

It  will  be  noted  that  I  have  recognized  two  types  of 
governmental  factors:  the  promotive  and  restrictive. 
With  the  latter  we  need  not  deal  as  it  represents  the 
recognized  and  over  emphasized  type  of  governmental 
control  which  is  wrongly  considered  the  whole  of 
legislative  and  governmental  duty.  I  desire  especially 
to  direct  the  attention  of  the  reader  toward  the  con- 
structive and  promotive  work  that  the  Government 
can  and  should  exercise. 

Banking  laws,  taxation,  cheap  land,  free  or  cheap 
transit,  municipal  building  of  homes,  tariff  on  building 


96  THE  SOCIAL  SURVEY 

materials,  etc.,  are  economic  factors  and  are  fundamen- 
tal in  determining  the  supply,  distribution,  cost  and 
character  of  homes. 

When  one  analyzes  the  factors  affecting  the  char- 
acter and  supply  of  homes  the  economic  cost  looms  up 
as  the  all  embracing  force  in  housing  reform.  The 
availability  of  capital  has  for  many  years  been  the 
element  which  has  stood  in  the  way  of  the  wage-earner 
in  his  effort  to  own  a  home.  Banking  institutions  as 
well  as  the  municipalities  and  the  state  have  charged 
heavily  for  any  'financial  assistance  that  the  ordinary 
wage-earner  has  been  able  to  obtain.  In  the  transac- 
tions that  have  taken  place  large  interests  and  dispro- 
portionate profits  to  the  middleman  have  placed  a 
heavy  burden  upon  the  home  owning  wage-earner. 

An  investigation  into  the  financial  methods  that 
prevail  in  a  community  and  the  financial  history  of 
many  of  the  individual  small  homes  will  reveal  facts 
that  should  lead,  as  they  have  already  done  in  Germany, 
to  banking  laws  and  municipal  and  state  loan  activities 
that  will  relieve  the  wage-earner  of  the  usury  and 
speculation  that  a  poor  man  must  face  when  he  desires 
to  acquire  his  own  home. 

The  banks  of  Germany  and  the  larger  cities  as  well 
as  the  French  Government  place  at  the  disposal  of 
individuals  and  building  societies  from  50  to  80%  of 
the  money  necessary  for  the  construction  of  working- 
men's  homes.  In  contrast  with  this  governmental 
service  we  should  ascertain  the  problems  and  difficulties 
of  the  modest  builder  in  our  own  communities. 

Land  values  depend  upon  the  intensity  of  their  use 
or  their  potentialities  for  such  use.  The  poor  man 
must  face  the  land  speculator  whose  profits  aggregate 


HOUSING  FACTORS  97 

during  a  short  period  of  time  from  100  to  5,000  per 
cent  of  the  original  investments. 

Cases  have  come  to  my  personal  attention  which 
yielded  a  profit  of  from  500  to  4,500  per  cent  during 
periods  of  holding  ranging  from  two  to  twelve  years. 
Similar  conditions  exist  in  all  cities  of  the  United 
States.  Such  profits  are  unnecessary  and  socially 
wasteful.  A  survey  should  reveal  the  facts  and  create 
public  opinion  against  land  speculation.  The  cities 
and  towns  should  own  land  and  offer  it  to  the  modest 
investor  at  a  profit  to  the  municipality  but  at  a  reason- 
able rate  to  the  investor. 

The  community  should  have  the  right  to  control  the 
use  of  the  most  valuable  land  in  the  community  and 
not  permit  valuable  waterfronts  to  be  occupied  by 
slums  and  dumps.  The  economic  loss  to  the  locality 
and  to  the  people  is  too  great  to  be  tolerated  without 
control.  There  are  innumerable  instances  of  water- 
front conditions  which  should  bring  shame  to  any  one 
with  local  civic  pride  and  indignation  to  the  hard- 
headed  practical  business  man. 

The  keeping  of  land  out  of  use  is  a  common  and 
paying  practice.  Our  systems  of  taxation  make  this 
practice  possible  and  a  housing  survey  would  be  of 
momentous  assistance  in  housing  reform  if  a  study  of 
such  land  and  its  relation  to  present  needs  were  made 
with  a  view  to  showing  how  the  system  of  taxation 
in  vogue  renders  the  practice  possible  under  social 
conditions  which  make  the  immediate  use  of  such  land 
imperative. 

The  cost  of  materials  is  frequently  affected  by  local, 
state  and  federal  legislation.  The  legislation  which  is 
imposed  upon  the  builder  is  frequently  inconsistent 


98  THE  SOCIAL  SURVEY 

with  the  needs  of  the  structures  and  out  of  proportion 
with  the  available  funds. 

The  statement  has  frequently  been  made  that  in 
the  last  two  thousand  years,  except  for  the  introduction 
of  steel,  there  has  been  no  progress  in  the  invention 
and  use  of  building  materials.  It  would  seem  safe  to 
assume  that  wood  will  always  be  the  staple  element 
of  building,  since  it  is  the  material  that  invariably 
becomes  a  part  of  the  structure,  and  is  accessory  in 
the  making  of  scaffolding,  forms  and  other  incidentals. 
The  United  States  is  becoming  more  and  more  de- 
forested, and  wood  is  yearly  increasing  in  price.  Lumber 
being  in  many  sections  of  the  country  the  most  im- 
portant building  material,  the  cost  of  construction  is 
being  enhanced.  The  character  and  size  of  buildings 
is  therefore  being  perceptibly  affected,  with  the  result 
that  rents  go  up,  and,  as  wages  do  not,  as  a  rule,  keep 
pace  with  rents,  housing  standards  go  down.  Since 
this  is  the  case,  it  is  of  extreme  importance  to  ascertain 
in  what  way  the  price  of  lumber  and  other  materials 
used  in  construction  may  be  reduced. 

The  advocates  of  conservation  of  natural  resources 
are  clamoring  for  laws  that  will  preserve  and  protect 
our  forests.  Builders  are  complaining  against  the 
high  price  of  lumber  due  to  what  they  claim  to  be  a 
monopoly  and  a  shortage  of  supply,  while  the  tariff 
interferes  with  its  free  importation.  The  failure  to 
heed  the  demands  of  the  advocates  of  conservation, 
and  the  tariff  imposed  upon  lumber,  render  impossible 
the  cheap  building  of  homes,  and  nullify  all  honest 
effort  toward  conservation.  A  removal  of  the  tariff 
on  lumber  would,  in  a  comparatively  few  years,  allow 
the  development  of  national  resources  of  lumber,  and 


HOUSING  FACTORS  99 

make  the  United  States  a  strong  competitor  in  the 
lumber  market  of  the  world.  The  downward  revision 
of  the  tariff  that  went  into  effect  lately  contains  rates 
on  building  materials  which  show  a  recognition  of  the 
need  for  cheapening  such  materials  and  the  protection 
of  the  present  undeveloped  national  resources  in  this 
country. 

Transit  is  generally  based  upon  the  commercial 
needs  of  a  community.  This  fundamental  error  in 
our  systems  of  transportation  and  the  " nickel"  policy 
that  so  frequently  prevails  among  our  public  ser- 
vice corporations  are  very  largely  responsible  for 
congestion,  high  land  cost  and  bad  housing  accom- 
modations. 

A  housing  survey  that  fails  to  recognize  the  problems 
that  the  wage-earner  must  face  in  reaching  his  place 
of  employment,  both  in  point  of  time  and  in  relation 
to  daily  cost  and  convenience,  is  incomplete.  A  large 
share  of  our  land  problems  may  be  solved  by  an 
adequate  transit  system.  The  congestion  that  often 
prevails  in  many  of  our  cities  is  due  to  difficulties  of 
access  to  places  of  employment  and  amusement  centres. 
Transit  facilities  in  harmony  with  local  needs  would 
be  a  remedy.  Belgium  is  solving  its  problem  of  con- 
gestion by  cheap  and  fast  transit  methods.  We  can 
apply  the  same  methods  in  this  country  and  make 
them  pay  both  to  the  individual  and  to  the  operating 
agencies.  The  expansion  of  residence  over  a  large 
territory  would  also  benefit  the  city  treasury  by  an 
increase  in  the  amount  of  land  use  and  the  economy 
that  would  result  from  improved  conditions  in  terms 
of  better  health  necessitating  fewer  hospitals,  better 
morals  necessitating  less  policing  and  fewer  judges, 


100  THE  SOCIAL  SURVEY 

greater  industrial  efficiency  with  increasing  earning 
capacity  and  higher  standards  of  living. 

I  have  dealt  with  factors  that  generally  do  not  enter 
into  a  housing  survey.  These  factors,  however,  are 
fundamental  to  constructive  housing  reform. 

Land,  taxes,  cost  of  materials,  availability  of  capital, 
transit  and  a  carefully  developed  policy  of  govern- 
mental agencies  which  would  tend  to  give  the  wage- 
earners  an  opportunity  to  acquire  and  maintain  their 
homes  under  economic  conditions  consistent  with  their 
wages,  their  physical  needs  and  social  standards  are 
the  only  practical  and  far-reaching  methods  of  solving 
the  housing  problem.  A  housing  survey  that  neglects 
a  consideration  of  these  factors  is  therefore  incomplete 
and  cannot  lead  to  constructive  reform. 

You  may  investigate  your  needs  for  docking  facilities 
and  mortgage  your  city  to  acquire  them,  but  if  in  so 
doing  you  sacrifice  the  interest  of  the  homes  of  the 
people  who  have  first  right  on  the  city's  investment 
you  will  soon  have  to  invest  your  gains  in  jails  and 
hospitals.  If  you  acquire  imposing  parks  and  boule- 
vards without  due  regard  to  the  service  that  these 
improvements  will  render  by  their  relationship  to  the 
homes,  you  will  be  indulging  in  public  luxuries  to  serve 
private  gain.  A  social  survey  that  does  not  take  as 
its  foundation  a  thorough  study  of  housing  conditions 
and  the  possibilities  for  improving  them  is  bound  to 
be  a  failure  and  it  is  for  this  reason  that  I  have  taken 
the  liberty  of  expanding  this  section  beyond  the  normal 
limitation  of  any  given  section  of  this  general  outline 
of  social  survey. 

There  are  cases,  however,  where  the  more  intensive 
study  of  the  housing  problem  is  not  possible.  In  such 


HOUSING  FACTORS  }()], 


cases  the  following  problems  may  be  studied  on  the 
lines  of  the  questions  outlined  below: 

OWNERSHIP  OF  HOMES.       ^ 

1.  How  many  families  own  their  own  homes? 

2.  Is  the  tendency  to  own  homes  on  the  increase  or  on  the 
decrease? 

3.  Are  the  individually  owned  homes  on  the  average  better 
than  the  homes  owned  by  other  persons  or  corporations? 

4.  What  is  the  general  character,  size,  building  material,  and 
architecture  of  individually  owned  homes? 

5.  What  is  the  average  assessed  valuation  of  the  individually 
owned  workingmen's  homes? 

6.  What  is  the  per  cent,  of  individually  owned  homes  free 
from  mortgages? 

7.  Are  mortgages  on  homes  taxed  separately  from  the  prop- 
erty itself? 

8.  What  are  the  building  associations  that  promote  indiv- 
idual home  building? 

9.  What  are  the  practices  of   the  local  banks  with  regard  to 
loaning  money  on  mortgages  or  for  building  purposes? 

10.  To  what  extent  do  the  mills  provide  houses  for  their 
employees? 

LEGISLATION. 

When  facts  concerning  the  housing  conditions  have 
been  collected  and  so  arranged  as  to  give  a  clear  con- 
ception of  the  problem,  a  thorough  study  of  the  laws 
relating  to  housing,  sanitation  and  house  building 
should  be  made.  This  can  best  be  done  by  persons 
familiar  with  handling  legislation  and  with  the  building 
trade.  Whenever  it  seems  apparent  that  the  building 
laws  are  insufficient  to  meet  the  needs  of  the  com- 
munity, an  examination  of  the  aspects  left  without 
legal  provision  should  be  included  in  the  survey.  When 
the  laws  in  existence  do  not  seem  to  be  enforced,  much 
profit  may  be  derived  from  an  examination  of  the 


THE  SOCIAL  SURVEY 


aspects  of  housing  legislation  unenforced  and  a  con- 
sideration of  the  machinery  provided  for  its  enforce- 
ment should  be  made  from  the  following  points  of  view : 

1.  Is  the  machinery  and  appropriation  provided  for  the  enforce- 
ment of  the  law  sufficient  to  meet  the  local  needs? 

2.  Is  the  law  clear  and  definite  enough  to  empower  the  offic- 
ials to  enforce  it? 

3.  Are  the  officers  efficient  and  honest  in  the  performance  of 
their  duty? 

These  three  questions  should  be  applied  as  a  test 
to  all  legislation  dealing  with  social  conditions  and 
whenever  possible  the  officials  concerned  should  be 
consulted  and  their  work  examined  with  a  view  to 
securing  necessary  facts  and  obtaining  their  co-opera- 
tion. 

RELATION  OF  HOMES  TO  THE  COMMUNITY. 

I  have  pointed  out  elsewhere  the  relation  between 
the  people  and  the  city  plan.  The  relation  of  the  home 
to  the  community  and  incidentally  to  the  distribution 
of  employment,  educational  and  recreational  facilities 
may  be  ascertained  in  a  general  way  by  answers  to 
the  following  questions: 

1.  What  transportation  facilities  are  the  street  car  and  railway 
systems  providing  to  facilitate  the  transportation  of  employees? 

2.  Are  reduced  fares  for  working  people  provided? 

3.  Are  the  outlying  districts  provided  with  adequate  trans- 
portation facilities  so  as  to  make  access  to  amusement  and  cul- 
tural centres  easy  and  cheap? 

4.  What  are  the  differences  in  the  average  cost  of  staple  foods 
between  the  congested  sections  and  the  outlying  districts? 

5.  Is  the  city  following  a  carefully  worked  out  plan  in  its 
development  of  streets,  parks,  playgrounds,  etc.,  or  are  the  real 
estate  interests  the  main  factor  in  the  development  of  the  com- 
munity? 


THE  HOME  AND  THE  COMMUNITY  103 

6.  Are  large  tracts  of  land  being  opened  up  for  residential 
purposes  and  what  steps  are  being  taken  by  the  community  to 
insure  symmetry,  open  spaces,  etc.? 

7.  Can  individual  homes  be  built  at  a  sufficiently  low  cost  to 
make  possible  reasonable  rents  and  a  fair  return  upon  the  invest- 
ment?    If  not,  why? 

INDUSTRIAL  SANITATION. 

In  the  earlier  part  of  this  bulletin  the  problems  of 
protection  against  industrial  accidents  which  result 
in  injury  and  death  were  discussed.  Industrial  sanita- 
tion deals  with  the  broader  aspects  of  health  as  related 
to  employment,  namely,  the  physical  injury  that 
results  from  the  conditions  under  which  the  work  is 
being  done. 

The  human  waste  which  results  from  the  lack  of 
scientific  methods  in  the  protection  of  the  health  and 
life  of  American  wage-earners  has  been  variously  esti- 
mated in  dollars  and  cents.  The  mortality  rate  due  to 
causes  directly  connected  with  employment,  places  the 
United  States  among  the  most  careless  nations  of  the 
civilized  world.  It  is  about  time,  therefore,  that  a 
far-reaching  constructive  policy  be  adopted  by  the 
individual  states  or  the  Federal  Government  whereby 
a  higher  value  would  be  placed  upon  human  life  and 
the  usefulness  of  the  individual  worker  in  the  field 
of  industry  be  prolonged  in  time  and  increased  in 
efficiency.  The  lesson  of  Europe  is  before  us  and  we 
have  only  to  learn.  Movements  in  this  direction  have 
been  started  already,  but  each  community  must  con- 
tribute its  share  of  interest  and  enthusiasm. 

The  larger  share  of  the  worker's  time  is  spent  in  the 
home  and  in  the  factory,  and  it  may  safely  be  estimated 
that  on  the  average  as  much  time  is  spent  in  the  place 


104  THE  SOCIAL  SURVEY 

of  employment  as  is  spent  in  the  home.  It  is  reasonable, 
therefore,  to  place  the  sanitary  conditions  of  the  indus- 
trial establishment  as  next  in  importance  to  housing 
sanitation. 

The  important  aspects  of  the  industrial  establish- 
ments may  be  ascertained  by  investigations  intended 
to  answer  the  following  questions: 

1.  What  proportion  of  the  workers  in  each  of  tke  principal 
industries  are  employed  in-doors  and  what  proportion  are  employ- 
ed out  of  doors? 

2.  What  are  the  sanitary  regulations  provided  by  state  laws 
affecting  industrial  establishments? 

3.  What  local  legislation  regulates  the  sanitation  in  industrial 
establishments,  and  what  are  the  legislative  powers  of  the  locality 
in  matters  of  health? 

4.  What  officers  are  charged  with  the  enforcement  of  the  law? 
(Give  title  and  number  of  state  and  local  officers,  salaries,  method 
and  term  of  appointment,  etc.) 

5.  Are  the  laws  enforced  and  if  not  who  is  responsible  for  the 
failure  to  enforce  them? 

6.  How  do  the  industrial  sanitary  laws  of  your  locality  com- 
pare with  similar  laws  of  other  communities  of  the  same  size  but 
in  different  states,  particularly  in  New  York  and  Massachusetts? 

7.  What  is  the  extent  of  manufacture  carried  on  in  tenement 
buildings  or  other  structures  not  intended  as  industrial  establish- 
ments? 

8.  What  are  the  hours  during  which  women  and  children  are 
permitted  to  work  in  industrial  establishments? 

9.  Are  workers  crowded  in  factory  buildings? 

10.  At  what  age  are  children  permitted  to  begin  work? 

11.  Are  sweatshops  common  and  what  are  the  products  manu- 
factured in  them? 

12.  What  is  the  death  rate  from  industrial  diseases? 

13.  Are  especially  dangerous  trades    prevalent  in   the    com- 
munity and  what  has  been  done  to  avoid  the  existing  dangers? 

14.  Are  special  efforts  being  made  to  educate  the  workers  in 
dangerous  occupations  as  to  the  best  methods  of  preventing  the 
ill  physical  effects  of  the  occupation? 


INDUSTRIAL  SANITATION  105 

15.  Are  recreational  facilities  provided  within  and  outside  in- 
dustrial plants  to  counteract  the  bad  effects  of  the  particular 
trade  processes  due  to  posture,  bad  atmospheric  conditions,  eye 
strain,  etc.? 

A  study  of  the  laws  relating  to  sanitary  regulation 
in  factories  and  shops  will  bring  the  various  aspects  of 
the  subject  to  the  attention  of  anyone  making  a  survey. 
The  enumeration  of  the  questions  involved  in  a  study 
of  this  kind  in  full  would  render  this  section  wholly 
out  of  proportion  with  the  rest  of  this  publication. 
The  reader  should  be  guided  in  the  consideration  of 
this  subject  by  the  laws  of  New  York  and  Massachu- 
setts, which,  although  not  ideal,  are  among  the  best 
so  far  available  in  the  United  States. 

SCHOOL  SANITATION. 

While  the  industrial  workers  are  spending  a  large 
share  of  their  time  in  shops,  factories  and  mines,  the 
children  over  a  certain  age,  (generally  seven  years)  are 
at  school  and  although  the  school  hours  are  not  quite 
as  long  as  the  hours  of  labor,  a  considerable  amount 
of  time  in  the  child's  life  is  spent  upon  the  seats  of  the 
class  room,  in  contact  with  other  children  and  subject 
to  the  influence  of  the  sanitary  conditions  of  the  school 
building.  That  the  public  schools  are  not  always  pro- 
vided with  the  best  sanitary  devices  and  are  not  beyond 
reproach  in  matters  of  possibility  for  contagion  and 
physical  injury  to  the  child,  is  a  fact  so  very  generally 
accepted  that  even  a  superficial  survey  of  community 
health  is  not  complete  without  a  consideration  of  the 
subject  of  school  sanitation. 

Some  of  the  questions  to  be  asked  in  connection 
with  sanitary  conditions  of  public  schools  are  as  follows : 


106  THE  SOCIAL  SURVEY 

1.  Is  medical  inspection  in  schools  provided  by  the  local 
government? 

2.  Is  the  inspection  done  only  for  children  that  are  pointed 
out  by  the  teachers,  or  for  every  pupil  in  the  schools? 

3.  What  proportion  of  all  the  children  in  the  schools  were  ex- 
amined last  year? 

4.  Do  the  school  teachers  see  to  it  that  the  children  receive 
the  medical  care  prescribed  by  the  medical  examiner? 

5.  Are  there  school  nurses  or  school  visitors  who  look  after  the 
medical  care  of  the  children  after  medical  examination? 

6.  Is  there  dental  examination  in  schools  and  what  is  the  meth- 
od of  examination  pursued? 

7.  Are  examinations  for  eye  strain  and  other  defects  of  the 
eyes  made  by  the  general  medical  examiner  or  an  oculist? 

8.  Is  the  number  of  seats  provided  in  the   school  rooms  suf- 
ficient to  accommodate  all  the  children  and  what  type  of  extra 
seats  are  used? 

9.  Are  the  seats  adjustable  in  the  school  rooms  and  are  they 
properly  adjusted? 

10.  Are  the  systems  of  ventilation  in  use  adequate  and  under- 
stood by  the  caretakers?     (Consult  medical  inspectors,  teachers, 
builders  and  janitors.) 

11.  What  is  the  size  of  play  space  connected  with  each  school? 

12.  Do  the  schools  have  baths? 

13.  Do  the  schools  furnish  free  or  cheap  lunches? 

14.  Are  open  air  schools  for  tuberculosis  and  physically  sub- 
normal children  maintained,  and  if  so  what  is  the  number  of 
classes,  the  number  of  children  and  the  location  of  these  schools? 

15.  Are  the  open  air  schools  sufficient  to  accommodate  all  the 
children  in  need  of  such  treatment? 

16.  Are  the  toilets  sewer-connected  and  properly  ventilated? 

17.  Have  the  common  drinking  cup  and  towel  been  abolished? 

18.  Are  mentally  defective  children  placed  in  separate  classes 
and  given  special  medical  care? 

In  formulating  the  above  questions  an  attempt  has 
been  made  to  emphasize  the  conditions  which  are  most 
obvious  and  which  could  be  ascertained  by  any  inter- 
ested citizen.  The  newer  movements  in  the  direction 


SCHOOL  SANITATION  107 

of  school  hygiene,  such  as  the  examination  of  the  eyes 
and  teeth,  open  air  schools,  etc.,  have  been  called  to 
mind  in  order  to  indicate  the  work  that  is  being  done 
in  some  of  the  more  progressive  cities  and  towns  of 
this  country. 

SANITARY  CONTROL. 

A  survey  of  the  general  sanitary  conditions  of  a 
locality  as  distinct  from  the  facts  relating  to  mortality 
and  morbidity  which  were  discussed  in  the  section 
dealing  with  the  general  subject  of  community  health, 
if  exhaustive,  should  be  undertaken  by  a  sanitary 
engineer  or  someone  acquainted  with  technical  problems 
of  health.  It  is  possible,  however,  to  suggest  some  of 
the  important  conditions  of  community  health  which 
may  be  studied  by  any  member  of  a  survey  committee 
with  satisfactory  results.  These  problems  are: 

GENERAL  QUESTIONS. 

1.  Is  the  locality  sewer  connected  throughout  and,  if  not,  which 
parts  are  not  sewer  connected? 

2.  Is  the  water  supply  of  good  quality,  and  are  tests  of  the 
condition  of  the  water  made  regularly  by  the  local  or  state  health 
authorities,  and  if  so  how  often  and  what  manner? 

3.  Is  the  house  refuse  removed  by  the  local  authorities,  and 
if  so,  how  often  and  in  what  manner? 

4.  Are  the  streets  regularly  cleaned,  and  what  is  the  authority 
in  charge  of  the  work? 

5.  Are  the  smoke,  dust  and  gases  emanating  from  the  manu- 
facturing establishments  controlled  by  legislation,  and  is  the  leg- 
islation enforced? 

CONTAGIOUS  DISEASES. 

1.  Are  cases  of  contagious  diseases  reported  to  the  health  au- 
thorities, and  what  agencies  are  engaged  in  following  them  up? 

2.  Are  advanced  cases  of  tuberculosis  cared  for  in  hospitals 
especially  provided  for  that  purpose  or  in  wards  set  aside  in  gene- 


108  THE  SOCIAL  SURVEY 

ral  hospitals,  and  are  accommodations  sufficient  to  meet  the  local 
needs? 

3.  Are  sanitaria  available   for  incipient  tuberculosis  patients 
and  have  they  sufficient  capacity  to  accommodate  all  those  in 
need  of  such  care? 

4.  Can  the  health  authorities  compel  the  removal  of  a  tuber- 
culous patient  to  a  hospital  when  dangerous  to  the  health  of  the 
members  of  the  family? 

5.  What  other  contagious  diseases  besides  tuberculosis  are  re- 
ported to  the  health  authorities;   how  and  where,  .in  cases  of  is- 
olation, are  these  cases  cared  for? 

6.  Is  fumigation  or  other  method  of  disinfection  practiced 
after  the  removal,  recovery  or  death  of  the  patient  in  the  home? 

THE  FOOD  SUPPLY. 

1.  Is  there  any  inspection  of  milk  in  your  community,  what 
are  the  laws  concerning  milk,  and  under  whose  jurisdiction  is  the 
work  done? 

2.  Is  the  inspection  done  without  licensing  the  dealer,  or  by  a 
system  of  license  which  is  based  upon  inspection  of  the  sources 
of  milk? 

3.  Is  there  meat  inspection  in  the  State,  and  in  what  manner 
is  the  inspection  done  in  your  locality? 

4.  Are  bread  stuffs,  candy,  fruit,  ice  cream,  etc.,  under  inspec- 
tion and  what  is  the  law  concerning  such  inspection? 

5.  What  other  classes  of  food  are  inspected  by  local  or  State 
authorities? 

6.  Is  there  a  pure  food  and  drug  law  in  your  state  and  how 
is  it  enforced  in  your  locality? 

7.  By  whom  and  in  what  manner  is  the  federal  Pure  Food 
Law  enforced? 

8.  Are  there  public  markets  and  under  what  authority  is  their 
sanitary  condition  controlled? 

In  dealing  with  health  problems  the  simplest  and 
most  vital  questions  have  been  considered.  The  more 
technical  problems,  however,  have  been  indirectly 
suggested  with  a  view  to  enlarging  the  scope  of  the 
inquiry  through  the  employment  of  experts  when  con- 
ditions warrant  such  action. 


^LEISURE. 

RECREATION  is  the  safety  valve  of  civilization. 
It  is  the  nightmare  and  dream  of  modern  society; 
it  is  the  balancing  medium  between  the  strain  of  daily 
toil  and  the  normal,  physical,  and  mental  functions;  it 
is  the  protector  of  human  society  and  the  training 
ground  for  the  criminal  and  degenerate.-  A  community 
that  tolerates  prostitution  without  control,  allows  the 
saloon  to  take  the  place  of  the  playground  and  the 
home,  closes  the  doors  of  its  schools  for  more  than  half 
the  time,  and  compels  the  children  to  find  their  amuse- 
ments upon  the  streets  and  back  alleys  is  producing 
its  own  criminals,  is  destroying  the  integrity  of  the 
family  and  injuring  the  industrial  efficiency  of  its 
workers.  That  recreation  is  needed  is  a  truism  that 
has  become  a  gospel  in  modern  social  reform ;  the  qual- 
ity of  the  recreation  must  be  determined  by  the  com- 
munity itself.  Recreation  is,  however,  only  a  limited 
aspect  of  the  broader  and  increasingly  more  complex 
problem  of  leisure. 

With  advancing  civilization  has  come  a  disentangle- 
ment and  differentiation  of  industrial  processes  and  a 
shrinking  of  work  hours  in  favor  of  leisure  time.  This 
condition,  so  increasingly  characteristic  of  highly  de- 
veloped peoples,  has  tended  to  deprive  production  of 
its  inspirational  and  recreational  elements  and  has 
reduced  work,  in  the  vast  majority  of  cases,  to  physical 
functioning  aided  only  by  a  limited  number  of  brain 
centres. 

It  may  be  said,  without  fear  of  denial,  that  the 
109 


110  THE  SOCIAL  SURVEY 

potentialities  for  progress  in  a  given  country  can  be 
measured  by  the  leisure  at  the  disposal  of  the  people, 
while  its  value  as  a  dynamic  factor  in  the  achievement 
of  progress  must  be  measured  by  the  manner  in  which 
this  leisure  time  is  utilised.  The  utilisation  of  leisure 
depends,  however,  upon  two  fundamental  factors: 
education  and  facilities  for  self  expression.  The  social 
survey  in  dealing  only  with  recreational  facilities  of 
the  community  is  taking  into  account  only  the  negative 
aspect  of  leisure  time,  namely,  the  facilities  for  recruit- 
ing energy  and  courage  and  nerve  force  necessary  for 
the  pursuit  of  the  normal  but  static  functions  of  social 
and  industrial  life.  What  needs  to  be  dealt  with  is 
the  positive,  dynamic  aspect  of  leisure,  which  repre- 
sents the  creative,  as  well  as  the  recreative,  aspects 
of  leisure  time  use.  In  so  doing  the  field  of  investiga- 
tion extends  beyond  the  bounds  of  playgrounds,  parks, 
swimming  pools  and  ball  fields  into  the  field  of  intel- 
lectual equipment  and  development,  the  relation  of 
the  people  to  the  arts  and  crafts  both  as  pastimes  and 
creative  forces  and  the  reaction  that  this  relationship 
of  the  people  to  their  leisure  produces  in  the  life  of 
the  political  and  social  institutions  of  the  com- 
munity. 

Of  the  three  essential  elements  of  human  life,  life, 
labor  and  leisure,  the  last  represents  the  most  highly 
social,  the  most  easily  amenable  to  differentiation,  the 
most  fruitful  field  for  the  development  of  individual 
creative  ability. 

Granted  the  importance  of  leisure  time,  the  com- 
munity should  assume  the  responsibility  for  its  pro- 
tection and  conservation  as  a  social  force  by  making 
adequate  provision,  either  directly  maintained  by  the 


CLASSIFICATION  OF  LEISURE  111 

community   or   stimulated   and   assisted   through   its 
efforts. 

Although  broad  classification  of  the  facilities  for 
adequate  use  of  leisure  time,  based  upon  a  clearly 
denned  line  of  cleavage  is  impossible,  I  venture  upon 
the  following  division:  i 

1.  Recreational.^ 

2.  Educational  and  Cultural. 

3.  Esthetic  and  Emotional. 

I  have  stated  that  recreation  is  to  be  understood  as 
meaning  the  utilisation  of  leisure  time  for  recuperation 
of  energy  and  the  employment  of  mental  and  physical 
faculties  with  a  view  to  maintaining  or  increasing  the 
productive  efficiency. 

Educational  and  cultural  occupations  as  a  leisure 
time  element  go  beyond  the  recreational  and  tend  to 
improve  and  create  new  forces  and  abilities  which  can 
be  used  later  as  a  means  of  recreative  activity,  but 
whose  main  function  is  the  constant  adjustment  of 
the  individual  to  the  social  achievement  of  his  fellow- 
men  and  of  his  age  and  a  utilisation  of  this  achievement 
for  both  personal  and  social  ends. 

The  esthetic  and  emotional  aspects  of  leisure  time, 
such  as  are  expressed  in  the  drama,  the  folk  song,  the 
folk  dance,  the  pageant,  etc.,  have  a  high  and  distinct 
recreative  value,  and  also  serve  to  develop  a  higher 
emotional  life  and  promote  facilities  for  the  social 
showing  of  such  emotional  life  through  the  creation 
and  development  of  Art. 

As  we  study  the  history  of  the  use  of  leisure  time, 
we  find  that  it  has  passed  from  self  expression  to  self 
indulgence.  The  pressure  placed  upon  the  workers 


112  THE  SOCIAL  SURVEY 

in  the  exercise  of  their  industrial  activities,  as  developed 
in  the  earlier  periods  of  this  industrial  era,  hampered 
the  possibilities  for  self  expression,  such  as  were  de- 
veloped during  the  earlier  periods  of  civilised  life,  so 
that  the  only  interpretation  that  the  workers  could 
give  to  leisure  was  a  passive  enjoyment  rather  than  an 
active  self  expression. 

In  this  country  we  are  only  beginning  to  see  the 
light  of  a  new  era  of  leisure  time  use  which  will  give 
the  people  a  true  conception  of  the  points  where  their 
function  as  promoters  of  the  highly  skilled,  carefully 
organized  and  commercialised  facilities  for  the  use  of 
leisure  time  will  become  only  one  of  the  humble  mani- 
festations of  leisure  time  needs  and  use,  while  individual 
participation  and  self  expression  on  the  part  of  all  will 
take  their  place  as  the  highest  achievements  of  civiliza- 
tion and  as  creative  forces  in  the  progress  of 
society. 

I  have  ventured  into  the  discussion  of  leisure  far 
beyond  the  statement  of  facts  to  be  ascertained,  not 
because  what  I  have  stated  is  not  already  clear  to 
many  writers  in  the  field  of  recreation  and  leisure,  but 
because  the  scope  of  the  inquiry  depends  upon  the 
character  of  the  investigation  to  be  pursued. 

RECREATION. 

With  commercialised  recreational  facilities,  certain 
factors  have  come  into  being  which,  by  their  dangerous 
character,  have  made  necessary  public  control  as  a 
means  of  protecting  the  community  against  their  evil 
effects.  In  order  to  ascertain  the  conditions  which 
have  developed  in  the  past  so  that  the  government  is 
obliged  to  take  part  in  the  control  of  the  commercialised 


APARTMENT    HOUSES    IN    SAN    FRANCISCO,    CALIFORNIA,    UTILISING  THE 

CONTOUR  OF  THE  LAND  IN  THE   DEVELOPMENT   OF 

ARCHITECTURAL  CHARACTER. 


RECREATION  113 

facilities  which  are  intended  as  a  means  of  recreation, 
the  following  questions  should  be  asked: 

1.  Is  the  locality  license  or  no  license? 

2.  If  license,  what  are  the  conditions  for  obtaining  a  license? 
What  is  the  number  of  saloons,  and  are  they  located  in  the  resi- 
dential, tenement  or  factory  districts? 

3.  How  common  is  the  practice  of   renting  rooms  in  connec- 
tion with  the  saloons? 

4.  Are  women  and  children  allowed  to  go  into  the  saloons  and 
under  what  restrictions? 

5.  If  the  locality  is  no  license,  is  liquor  sold  in  any  particular 
establishments  and  in  what  manner? 

6.  Are  houses  of  prostitution  or  assignation  permitted  or  tol- 
erated? 

7.  Is  street  soliciting  by  prostitutes  tolerated  by  the  police? 

8.  Are  rooming  houses  under  police  supervision,  and  if  not 
what  is  the  consensus  of  opinion  concerning  the  moral  condition 
of  rooming  houses? 

9.  Are  the  dance  halls  under  police  supervision,  and  what  is 
the  moral  condition  that  prevails  in  such  dance  halls? 

10.  Are  dance  halls  connected  with  saloons  or  rooming  facili- 
ties or  both  and  what  is  the  condition  of  these  saloons  and  room- 
ing facilities? 

11.  What  is  the  age  limit  for  men  and  women  permitted  to  use 
the  dance  halls? 

12.  By  whom  and  how  are  the  regulations  concerning  the 
saloons,  rooming  houses  and  dance  halls  enforced? 

13.  What  legal  restrictions  are  placed  upon  theaters  and  mov- 
ing picture  shows  and  what  department  enforces  those  legal  re- 
strictions? 

The  saloon,  the  dance  hall  and  the  rooming  house, 
combined  with  dangers  of  prostitution,  present  the 
most  important  problems  of  recreation  and  amusement 
that  exist  in  a  community.  In  conjunction  with  these 
problems  the  cheap  theater,  the  summer  amusement 
resort,  and  the  opportunities  afforded  by  the  indis- 
criminate running  of  steamer  excursions  upon  which 
8 


114  THE  SOCIAL  SURVEY 


the  liquor  traffic  is  not  controlled,  the  careless  renting 
of  state  rooms,  and  lack  of  supervision  in  the  conduct 
of  excursionists,  may  also  form  part  of  the  survey  of 
the  amusement  and  recreation  facilities.  The  objection- 
able conditions  in  the  latter  types  of  amusement  are 
so  obvious  as  to  require  no  outline  of  investigation. 

With  the  most  important  amusement  facilities  of 
a  public  nature  considered,  we  may  proceed  to  the 
consideration  of  another  class  of  amusement  which  is 
generally  provided  by  the  community  or  some  private 
agency  for  the  purpose  of  counteracting  the  evil  effects 
of  the  saloon,  the  dance  hall  and  the  cheap  theater. 
The  public  assets  and  liabilities  in  providing  recreation 
and  amusements  may  be  ascertained  by  a  study  of  the 
following : 

1.  What  park   facilities   are   provided  by   the   community? 
What  are  the  distances  from  the  residence  and  tenement  districts 
and  what  is  the  fare  to  these  parks? 

2.  Are  grounds  for  ball  and  other  games  for  adults  furnished 
by  the  community? 

3.  Are  playgrounds  for  children  and   adults  provided   by  the 
community  or  by  private  agencies  or  both;  how  are  they  super- 
vised, what  is  the  cost  of  their  maintenance  per  year,  what  is 
the  attendance  during  various  seasons  of  the  year,  what  is  the 
equipment  and  are  they  located  where  they  are  most  needed? 

4.  Are  the  school  buildings  provided  with  playgrounds;   if  so 
are  the  children  permitted  to  use  them  in  the  summer  and  are 
they  supervised? 

5.  Are  free  concerts  in  parks,  playgrounds  and  schools  provided 
by  the  community? 

6.  Have  moving  picture  shows,  theatrical  performances  and 
other  amusements  been  introduced  into  the  public  schools? 

7.  Have  games  been  introduced  into  the  work  of  the  public 
schools? 

8.  What  is  the  total  amount  of  money  spent  by  the  city  or 


RECREATION  115 

town  for  public  recreation  as  compared  with  expenditures  for 
fire  protection,  courts,  jails,  etc.? 

9.  Are  the  public  recreation  facilities  available  to  the  public 
on  Sunday  and  if  not,  what  is  the  main  reason  for  the  closing 
on  Sunday? 

The  study  of  public  recreation  and  amusements 
should  lead  the  survey  committee  not  only  to  ascertain 
the  existing  facilities,  but  also  to  inquire  into  the  pos- 
sibilities and  resources  available  which  could  be  used 
in  extending  the  service  of  the  local  government  and 
of  such  volunteer  agencies  as  may  be  available.  The 
finding  of  such  possibilities  and  resources  must,  how- 
ever, be  left  entirely  to  the  discretion  and  intelligence 
of  the  committee  and  its  workers. 

COMMERCIAL  RECREATIONAL  FACILITIES. 

So  far  we  have  dealt  with  facilities  provided  by  the 
public  authorities.  There  are,  however,  in  each  com- 
munity provisions  for  recreation  that  are  either  highly 
commercialised,  such  as  the  theater  and  the  moving 
picture  "show,"  the  athletic  field  for  professional 
players,  the  back  garden  and  other  similar  facilities. 
These  have  grown  out  of  local  demands  and  need 
special  consideration  in  survey  work,  as  they  are  an 
accurate  index  of  the  relation  between  public  recrea- 
tional facilities  and  local  needs  and,  by  careful  analysis, 
may  serve  as  indices  for  the  lines  of  enterprise  that 
public  recreational  facilities  should  follow. 

These  private  facilities  should  be  studied  from  the 
following  points  of  view : 

1.  What  are  the  various  types  of  recreational  facilities  provided 
by  commercial  enterprise  and  what  is  the  legal  and  administra- 
tive machinery  provided  for  their  control? 

2.  What  is  the  cost  per  person  expended  by  the  people  of  the 


116  THE  SOCIAL  SURVEY 


community  in  the  maintenance  of  the  commercialised  amuse- 
ments according  to  each  type  of  such  amusement  and  what  is 
the  per  capita  cost  of  recreational  facilities  provided  by  the  com- 
munity? 

3.  To  what  extent  do  the  commercialised  amusements  dupli- 
cate public  recreational  facilities? 

4.  What  is  the  basis  of  competition  between  the  public  and 
commercialised  recreational  facilities  of  the  same  type  and  how 
could  this  competition  be  turned  in  favor  of  the  public  facilities? 

5.  What  has  been  the  history  of  the  various  commercialised 
amusements  as  compared  with  the  facilities  supported  by  the 
public? 

6.  What  type  of  amusements  would  seem  to  present  a  menace 
either  to  health  or  morals  of  their  patrons  and  what  proportion 
of  the  total  amusement  facilities  do  they  represent? 

7.  Are  these  dangerous  amusements  inherently  bad  or  would 
improvement  through  control  do  away  with  their  objectionable 
features? 

The  commercialised  amusement  is  undoubtedly  the 
most  difficult  to  study  because  of  its  great  range  of 
variety  and  because  no  records  available  for  public 
use  are  kept.  Through  local  ordinances  or  state  laws 
some  records  might  be  obtainable,  but  in  most  instances 
attendance,  character  of  amusement,  sanitary  con- 
dition, exposure  to  danger  from  bad  companions  or 
the  professional  white  slaver,  etc.,  will  have  to  be 
ascertained  by  personal  investigation. 

PRIVATE  NON-COMMERCIAL  RECREATIONAL  FACILITIES. 

In  most  large  communities  with  over  20,000  popula- 
tion there  are  many  privately  maintained  recreational 
facilities  that  meet  definite  needs  and  are  quite  distinct 
from  the  commercialised  or  the  public  recreational 
facilities.  Among  the  agencies  providing  such  facilities 
are  the  churches,  settlements,  Young  Men's  Christian 
Associations,  Young  Women's  Christian  Associations, 


NON-COMMERCIAL  FACILITIES  117 

boys'  or  girls'  clubs,  playgrounds  and  other  similar 
philanthropic   or  semi-philanthropic   institutions. 

The  moral  and  physical  conditions  under  which 
these  recreational  facilities  are  conducted  may,  in 
most  instances,  be  depended  upon  to  be  subject  to 
reasonable  supervision.  The  important  problems  to 
be  considered,  however,  in  connection  with  these 
facilities  are  as  follows: 

1.  To  what  extent  do  the  private  recreational  facilities  meet 
the  needs  of  the  neighborhood  in  which  they  are  located? 

2.  Is  the  cost  of  maintaining  these  facilities  justifiable  when 
compared  with  the  numbers  attending  the  public  or  the  com- 
mercialised agencies  at  the  same  costs? 

3.  Are  the  recreational  facilities  suitable  for  the  types  of.  people 
they  are  intended  for  and  if  not,  how  could  they  be  rendered 
suitable? 

4.  Is  the  inside  management  sufficiently  well  adapted  to  the 
type  of  people  who  are  expected  to  use  the  facilities  and  is  it 
sufficiently  flexible  to  meet  special  needs? 

5.  Are  the  private  agencies  conducting  experimental  work  in 
the  recreational  field  which  might  serve  as  a  guide  in  the  organi- 
zation and  management  of  the  public  agencies? 

6.  To  what  extent  are  these  philanthropic  or  semi-philanthro- 
pic agencies  self  supporting? 

Passing  from  the  private  agencies  which  are  sup- 
ported from  philanthropic  resources,  we  find  in  many 
communities  a  variety  of  co-operative  organizations 
representing  many  recreational  facilities  which  need 
study.  Some  of  these  represent  a  dangerous  element 
in  the  community,  while  others  are  the  result  of  legiti- 
mate needs  and  are  the  expression  of  the  highest  type 
of  co-operative  and  recreational  organization.  Among 
the  former  may  be  mentioned  the  drinking  and  gam- 
bling clubs,  while  among  the  latter  are  the  athletic 
societies,  such  as  the  German  "Turnverein,"  singing 


118  THE  SOCIAL  SURVEY 

societies  and  other  similar  organizations.  A  careful 
examination  of  the  membership,  management,  pur- 
poses and  results  accomplished  by  these  private 
recreational  societies  may  be  useful  both  in  establishing 
adequate  control  of  the  dangerous  elements  and  in 
adapting  the  methods  of  legitimate  organizations  to 
both  public  and  philanthropic  recreational  facilities. 

CULTURAL  AND  EDUCATIONAL  FACILITIES. 

Once  an  immigrant  from  eastern  Europe  who  had 
recently  acquired  the  English  language  and  was  wal- 
lowing in  the  luxury  of  access  to  an  unlimited  and  un- 
censored  supply  of  books  found  after  many  weeks  of 
reading  and  study  that  his  newly  acquired  knowledge 
was  evaporating  almost  as  fast  as  he  acquired  it. 
Disturbed  by  this  experience,  he  presented  himself 
one  day  before  the  chief  librarian  and  asked  for  advice 
in  the  selection  of  books  that  would  educate  him  and 
make  him  stay  so. 

Our  public  schools  do  or  pretend  to  educate  us,  but 
they  do  not  make  us  stay  so.  The  function  of  making 
us  stay  educated  after  our  training  in  the  recognised 
institutions  is  completed  is  one  dependent  upon  leisure 
time  and  the  facilities  the  community  affords  for  the 
maintenance  and  continuance  of  public  education 
beyond  the  public  schools. 

Local  institutions  and  political  organizations  are 
constantly  changing.  The  inventions  in  industry,  the 
discoveries  of  science,  the  development  of  new  philoso- 
phies that  underlie  the  cosmic  forces  of  the  universe, 
the  growth  of  new  standards  of  ethics  and  of  new 
religious  beliefs  affect  our  daily  life  more  intimately 
than  we  are  able  to  realise.  There  is  a  constant  flow 


CULTURAL  AND  EDUCATIONAL  FACILITIES     119 

of  ideas  and  ideals  which  affect  our  whole  social  system 
as  we  understand  or  fail  to  understand  them.  It  is 
this  flow  of  ideas  and  ideals  that  demands  the  analytical 
thought  of  the  people  which  can  be  secured  only 
through  the  most  extensive  and  intelligent  use  of 
leisure  time  as  an  educational  factor. 

The  press,  the  public  lecture  and  forum,  the  library, 
the  extension  departments  of  our  universities  and 
museums  are  among  the  most  important  forces  upon 
which  the  educational  and  cultural  life  of  a  community 
logically  depends. 

The  PressT 

In  this  country  we  have  come  to  recognise  the  press 
as  a  powerful  factor  in  the  life  of  a  community.  The 
influence  of  the  press  as  an  educational  factor  can  be 
measured  only  by  a  careful  study  of  the  local  daily 
and  periodical  publications.  While  no  set  rules  regard- 
ing the  method  of  study  that  should  be  applied  in  the 
analysis  of  the  local  press  can  be  laid  out  with  any 
degree  of  definiteness  and  of  general  application,  such 
questions  as  the  following  may  throw  some  light  upon 
the  situation: 

1.  How  many  dailies  and  periodicals  are  published  in  the 
community  mainly  for  local  consumption  and  what  is  their  re- 
spective circulation? 

2.  What  partisan  groups,  political,  social,  industrial  or  religi- 
ous are  represented  by  the  local  press? 

3.  What  is  the  attitude  of  the  press  toward  local  social  and 
economic  problems? 

4.  What  type  of  educational  material  do  the  local  papers  con- 
tain aside  from  news  items  and  partisan  discussions? 

5.  What  changes  have  taken  place  within  the  last  ten  years 
in  the  most  important  local  publications  in  relation  to  factional 
divisions  and  educational  material? 


120  THE  SOCIAL  SURVEY 


6.  Is  the  press  ready  to  follow  certain  lines  of  educational  lead- 
ership that  can  be  separated  from  partisan  discussions? 

7.  Are  articles  and  letters  relating  to  local  problems  and  other 
educational  material  published  by  the  press  without  discrimin- 
ation or  censorship? 

It  is  on  the  basis  of  this  knowledge  only  that  we  can 
form  an  estimate  of  the  value  of  the  local  press  both 
as  an  educational  force  and  as  an  ally  of  a  social  survey, 
the  most  important  function  of  which  is  the  publica- 
tion of  facts  relating  to  local  conditions  with  a  view 
to  educating  public  opinion  and  securing  permanent 
improvements. 

The  Public  Lecture  and  the  Forum. 

Professor  Corson  of  Cornell  University  once  said: 
"We  define  education  as  a  means  of  drawing  out  and 
then  we  do  our  utmost  to  find  ways  of  ramming  it  in." 
In  discussing  the  relation  of  the  public  lecture  to  the 
forum  one  is  tempted  to  define  the  former  as  a  means 
of  ramming  education  into  the  public  and  the  latter 
as  a  means  of  drawing  the  thought  out  of  the  public. 

Some  of  the  lecture  and  forum  facilities  are  offered 
by  governmental  bodies,  such  as  the  public  schools, 
while  others  are  maintained  by  churches,  settlements, 
colleges,  private  scientific  societies,  co-operative  politi- 
cal and  social  organizations,  etc.  The  subjects  dis- 
cussed either  in  lectures  or  debates  with  the  names  of 
the  organizations  offering  the  opportunities  to  the 
public  or  selected  groups,  the  attendance,  and  a  general 
estimate  of  the  lectures  given  and  debates  held  during 
one  winter  month  will  give  a  sufficiently  clear  idea  of 
the  range  of  thought  that  is  permitted  to  flow  through 
the  community.  I  use  the  word  flow  deliberately 
because  in  recent  years  public  schools  and  colleges, 


CULTURAL  AND  EDUCATIONAL  FACILITIES     121 

as  well  as  many  private  organizations  not  excluding 
churches,  have  been  tempted  to  place  a  certain  censor- 
ship upon  the  lines  of  discussion  and  debate  that 
should  be  permitted  in  the  relation  of  the  subjects 
for  discussion  that  is  carried  on  in  private  halls  to  the 
discussion  that  is  permitted  in  public  buildings.  Public 
assistance  will  determine  the  extent  of  thought  and 
expression  that  the  community  affords. 
The  Library.  -V" 

An  agency  for  public  education  which  is  coming 
more  and  more  to  be  a  guiding  force  in  the  life  of  a 
community  is  the  public  library  and  within  recent 
years  it  has  fully  justified  its  prominence  as  a  social 
factor.  A  few  questions  relating  to  libraries  may  be 
asked  with  profit: 

t  1.  What  is  the  number  of  libraries  in  the  community,  what 
is  the  size  of  their  book  collections,  what  is  the  number  of  readers, 
hours  of  service,  etc.? 

2.  Are  the  congested  sections  provided  with  proper  library  fac- 
ilities and  what  are  the  most  distant  points  in  the  community 
from  any  library? 

3.  Under  what  conditions  are  books  loaned  to  readers  and  do 
readers  have  free  access  to  shelves? 

4.  Are  home  libraries  or  some  other  methods  of  depositing 
small  collections  of  books  in  private  homes,  settlements,  etc., 
provided? 

5.  What  is  the  number  of  private  book  collections  at  the  dis- 
posal of  the  public? 

6.  Are  the  schools  provided  with  small  deposits  of  books  for 
the  use  of  teachers  and  pupils,  and  are  similar  deposits  available 
in  factories  and  stores? 

7.  Are  books  on  subjects  related  to  special  industries  carried 
on  in  the  locality  reserved  in  the  libraries  for  the  special  use  of 
workers  and  students? 

8.  Are  notices  of  new  books  and  other  library  facilities  pub- 
lished often  in  the  press  for  the  purpose  of  attracting  readers? 


122  THE  SOCIAL  SURVEY 

9.  Are  exhibits  held  and  public  lectures  given  in  the  libraries? 

10.  Do  any  of  the  local  libraries  provide  facilities  for  secur- 
ing information  for  readers  not  expert  in  the  use  of  books  and 
libraries  and  what  is  the  nature  of  these  facilities? 

11.  Are  small  collections  of  books  relating  to  current  topics  of 
special  interest  placed  at  the  disposal  of  the  public? 

12.  Are  the  book  buying  committees  of  sufficiently  broad  cali- 
ber to  give  the  library  a  collection  of  books  of  broad  and  diversi- 
fied scope? 

Extension  Departments  of  Universities. 

The  extension  departments  of  the  universities,  while 
in  many  instances  adequately  developed  as  continua- 
tion schools  for  adults,  frequently  fail  to  be  more  than 
adjuncts  of  the  general  flood  of  so-called  educational 
lecturing  which  has  no  special  message  and  does  not 
meet  any  particular  need.  An  analysis  of  the  subject 
matter  of  such  lectures  will  soon  reveal  their  value 
as  a  means  of  extending  educational  influences  of  an 
academic  character  beyond  the  confines  of  the  univer- 
sity campus. 

The  Museum  and  Art  Gallery. 

While  the  museum  and  the  art  gallery  represent 
frequently  a  vast  investment  and  priceless  treasures, 
the  use  of  these  educational  factors  in  the  community 
is  frequently  limited  to  the  few  select  people  who  have 
a  knowledge  and  an  appreciation  of  museum  and  art 
gallery  objects.  The  actual  measure  of  the  value  of 
such  facilities  to  the  community  would  be  found  in  a 
careful  census  of  the  attendance  during  a  period  of 
say,  six  months,  gathered  not  only  at  the  gate,  but 
from  questions  asked  in  schools,  factories,  stores, 
settlements,  clubs,  etc. 

The  means  of  attracting  the  public  to  the  museum 


EMOTIONAL  ASPECTS  OF  LEISURE  123 

and  art  gallery  through  publicity  of  various  kinds,  co- 
operation with  educational  institutions,  and  other 
organizations  should  be  considered  with  a  view  to 
ascertaining  whether  with  a  small  additional  invest- 
ment for  publicity  a  greater  usefulness  could  not  be 
given  to  the  objects  gathered,  for  the  use  and  enjoy- 
ment of  the  people. 

THE  EMOTIONAL  ASPECTS  OF  LEISURE. 

Among  the  emotional  aspects  of  leisure  we  have  as 
the  most  important  religion  and  art. 

The  religious  spirit  has  become  crystallised  in  the 
churches  of  various  denominations  and  creeds  and 
their  relation  to  the  people  and  the  community  is  of 
paramount  importance.  We  cannot  in  this  work  under- 
take a  discussion  of  the  relation  that  the  church  has 
to  the  religious  needs  of  the  people.  It  would  seem 
that  a  sufficiently  diversified  grouping  of  religious 
beliefs  has  come  into  being  in  this  country  and  else- 
where to  satisfy  any  of  the  temperamental,  philosophic 
and  racial  differences  that  exist  among  the  people  and 
if  one  fails  to  find  the  particular  religion  or  creed  best 
suited  to  one's  needs,  the  solution  is  to  be  found  in  a 
further  search  for  new  sects  rather  than  in  the  creation 
of  a  new  religious  creed. 

The  problem,  however,  that  the  social  surveyor  has 
to  face  is  not  the  adjustment  of  the  individual  to  a 
particular  creed,  but  the  adjustment  of  the  church  to 
a  changing  social  order  and  the  application  of  ethical 
standards,  more  or  less  common  to  all  religions,  to 
practical  social  problems.  It  is,  therefore,  the  social- 
ising influence  of  the  church  on  the  basis  of  its  own 


124  THE  SOCIAL  SURVEY 


ethical  code  that  should  be  taken  as  a  standard  in 
measuring  church  efficiency. 

Some  of  the  questions  to  be  asked  in  connection 
with  an  inquiry  into  this  aspect  of  the  life,  work  and 
influence  of  the  church  are  as  follows: 

1.  What  is  the  denominational  distribution  of  the  population 
of  the  city?     (Take  a  church  census  of  the  whole  community  or 
of  one  or  more  neighborhoods.) 

2.  How  does  the  denominational  census  correspond  to  the 
church  membership  in  the  community? 

3.  Are  the  churches  located  at  strategic  points  in  relation  to 
their  membership  or  potential  membership? 

4.  Are  church  activities  sufficiently  diversified  and  attractive 
to  hold  the  interest  of  the  average  mind? 

5.  Are  religious  discussions  encouraged  among  laymen,  or  are 
the  ministers  the  only  and  supreme  authority  in  matters  of  re- 
ligious belief  and  learning? 

6.  Do  the  ministers  stand  out  as  a  force  in  the  community  in 
matters,  which  seem  to  be  the  least  controversial  of  subjects  of 
agitation,  and  are  they  considered  fearless,  intelligent,  progressive 
leaders? 

7.  Is  the  church  management  a  democratic  institution  or  is  it 
in  the  hands  of  a  group  of  powerful  individuals  who  control  the 
policy  of  the  church  in  accordance  with  an  established  order  which 
cannot  be  deviated  from  without  precedent? 

8.  Are  the  churches  used  as  forums  for  the  discussion  of  speci- 
fic public  questions? 

9.  What  churches  carry  on  institutional  work  and  what  are 
their  activities? 

The  questions  I  raise  may  involve  exhaustive  study 
of  the  most  skilful  kind.  It  would  be  well  to  place 
before  the  clergy  the  above  questions  and  allow  them 
to  apply  the  test  of  self  analysis  which,  if  done  con- 
scientiously and  fearlessly,  will  reveal  many  problems 
of  the  church  far  beyond  those  I  have  ventured  to 


EMOTIONAL  ASPECTS  OF  LEISURE  125 

suggest,  with  the  result  that  a  more  highly  socialised 
church  would  come  into  being. 

ART. 

Art  is  the  highest  expression  of  creative  socialised 
leisure.  Its  character  and  development  depend  not 
alone  upon  the  innate  genius  and  achievement  of  the 
individual  but  upon  the  concept  and  appreciation  of 
art  forms  among  the  people  themselves.  In  other  words 
art  in  all  its  manifestations  is  the  result  of  creative 
genius  in  its  relation  to  social  achievement  in  education, 
production,  leisure  and  social  institutions. 

As  in  the  case  of  the  forms  of  physical  recreation, 
such  as  football,  baseball,  etc.,  so  in  the  fields  of  art 
we  have  compressed  the  utilisation  of  leisure  in  relation 
to  it  with  objective,  contemplative,  almost  passive, 
enjoyment  of  art  forms  and  have  completely  neglected 
to  recognise  the  fact  that  art  can  be  made  a  synthetic 
product  of  the  emotional  life  of  the  people,  expressed 
en  masse,  enjoyed  and  understood  en  masse. 

It  is  true  that  the  theatre,  the  symphony  orchestra, 
the  art  galleries,  the  esthetic  dancer,  and  other  art 
forms  are  necessary  manifestations  of  the  emotional 
life  of  the  people  which  to  a  considerable  extent  inter- 
pret their  emotions,  aspirations  and  ideals.  A  survey 
of  these  manifestations  and  art  forms  in  the  community 
is  necessary  not  only  from  the  point  of  view  of  the 
measure  of  the  use  of  leisure  time  along  these  lines 
that  prevails,  but  from  the  point  of  view  of  the  com- 
munity plan  for  a  well  co-ordinated  plan  of  the  develop- 
ment and  promotion  of  the  use  of  leisure  time  in  art 
forms.  The  national  theatres  of  Europe,  the  orchestral 
organizations  maintained  and  supervised  by  munici- 


126  THE  SOCIAL  SURVEY 

palities,  the  costly  collections  of  art  treasures  that 
have  found  their  way  into  our  art  galleries  are  all 
manifestations  of  a  great  need  for  the  placing  at  the 
disposal  of  the  people  of  high  types  of  art  forms  as  a 
means  of  stimulating  the  appreciation  and  under- 
standing of  the  emotional  and  cultural  value  of  art. 
The  survey  should  ascertain  to  what  extent  the 
facilities  for  the  enjojnnent  of  art  are  related  to  their 
actual  use  by  the  public. 

In  order  to  do  this  the  following  few  questions  may 
be  asked: 

1.  What  are  the  art  forms  encouraged,  maintained  and  con- 
trolled by  the  state,  municipal  or  private  agencies? 

2.  What  are  their  true  values  and  in  what  way  is  their  selec- 
tion determined? 

3.  In  what  ways  are  the  people  in  the  community  brought  in 
touch  with  the  facilities  for  enjoying  the  recognised  art  forms 
in  the  community? 

4.  Are  the  schools,  public  lecture  system,  recreational  agencies, 
etc.  promoting  through  educational  and  publicity  means  an  in- 
telligent appreciation  and  understanding  of  the  art  forms  at  the 
disposal  of  the  people? 

5.  Are  the  public  buildings  and  monuments  in  the  community 
built  in  a    manner  that  would  tend  to  harmonize  with  best  art 
standards  of  modern  civilization? 

6.  Do  the  schools  and  the  institutions  purporting  to  give  train- 
ing in  home  making  endeavor  to  instill  in  the  pupils  an  appre- 
ciation of  the  differences  between  the  artistic  and  the  ugly? 

7.  Does  the  city  have  an  artistic  ideal  in  its  general  develop- 
ment and  plan? 

These  questions  are  more  or  less  abstract  but  they 
relate  to  one  of  the  most  pressing  needs  in  American 
civilization.  Children  and  adults  alike  must  be  taught 
the  difference  between  the  esthetic  and  the  ugly  and 
must  be  stimulated  in  their  choice  of  their  art  enjoy- 
ment along  the  lines  represented  by  the  highest  forms 


- 


EMOTIONAL  ASPECTS  OF  LEISURE  127 

of  art.  This  should  apply  to  the  selection  of  furniture 
for  the  home  in  the  same  way  that  it  applies  to  the 
selection  of  poetry,  novels,  the  drama,  the  symphony, 
or  the  esthetic  dance.  Commercialised  art  needs  the 
stimulus  of  a  higher  but  popular  education  in  art,  if 
we  are  not  to  degenerate  to  the  low  levels  of  the  lewd 
cabaret  and  the  skilful  but  clumsy  clog  dance  as  the 
symbols  of  the  emotional  expressions  of  the  common 
people  of  America. 

Passing  from  the  art  forms  which  find  their  expres- 
sion through  the  highly  skilled  and  personally  emotional 
producer  of  art  forms  as  we  find  them  in  the  writer  of 
the  novel,  the  poet,  the  dramatist,  the  painter,  the 
actor  and  the  singer  to  the  production  of  art  forms 
that  find  their  creation  and  expression  in  the  people 
themselves,  we  find  a  wholly  virgin  field  and  one  that 
affords  the  greatest  opportunities  for  popular  self 
expression  and  self  interpretation,  one  that  is  pregnant 
with  the  great  truths  of  individual  values  and  collective 
powers  in  the  creation  of  art. 

The  pageant,  the  folk  dance,  the  folk  song,  the  fairy 
tale  are  all  manifestations  of  the  common  imagination 
of  the  people  purified  and  crystallised  into  forms  of 
great  simplicity  and  beauty  and  capable  of  reproduc- 
tion with  professional  preparation  or  commercial  organ- 
isation. It  is  these  forms  of  art  that  the  city  of  the 
future  will  soon  find  its  greatest  civic  and  creative 
assets.  At  the  present  time  the  American  as  recognized 
by  law  and  tradition  has  no  forms  of  art  that  have 
been  preserved  through  the  generations  that  have 
passed.  The  intensely  individualistic  life  of  pioneer 
days  made  the  preservation  of  the  traditional  folk 
arts  impossible  and  the  present  day  finds  the  truly 


128  THE  SOCIAL  SURVEY 

American  people  in  ecstasy  over  the  folk  creations  of 
Russia,  Poland,  Italy,  Norway,  but  lacking  a  contribu- 
tion of  its  own.  Slowly  American  society  is  becoming 
more  intensely  coherent  and  expressive  of  definite 
ideas  and  ideals.  This  is  bound  to  result  in  a  new  and 
great  folk  art,  but  its  basis  must  be  found  in  the  folk 
art  forms  of  the  people  who  have  come  more  recently 
from  foreign  lands  and  whose  folk  art  has  reached  a 
state  of  development  that  is  intensely  social  and  highly 
artistic. 

The  festival  of  the  Italian,  the  dance  of  the  Pole, 
the  folk  song  of  the  Russian,  the  folk  art  of  the  Bul- 
garian are  all  assets  in  an  American  community  that 
should  be  studied  and  utilised.  It  is  only  through  the 
knowledge  and  understanding  of  these  folk  arts  of  the 
great  conglomerate  mass  of  national  and  racial  factors 
that  make  up  this  country  that  a  true  folk  art  can  be 
produced  and  no  great  nation  has  ever  lived  without 
a  great  art.  Let  the  social  surveyor  recognise  this 
aspect  of  the  social  life  of  the  people  with  as  much 
concern  at  least  as  he  regards  the  accounting  of  the 
minute  expenditures  of  the  city's  finances  and  the 
humble  products  of  the  public  institution  for  the  deaf, 
the  blind  or  the  insane. 

RELATION  OF  GOVERNMENT  TO  LEISURE. 

Recent  years  have  witnessed  an  unprecedented 
development  of  recreational  facilities  provided  and 
maintained  by  local  governments.  The  playground, 
the  wider  use  of  the  school  plant,  the  recreation  centre, 
the  swimming  pool,  the  bathing  beach,  are  all  creations 
of  a  growing  need  for  better  and  more  diversified 
recreational  facilities.  The  public  lecture  and  the 


IF  TENEMENTS  CANNOT  BE  AVOIDED  THEIR  SURROUNDINGS  SHOULD 
BE  CAREFULLY  PROTECTED. — BERLIN,  GERMANY. 


RELATION  OF  GOVERNMENT  TO  LEISURE      129 

public  band  concert  mark  the  recognition  of  the  cul- 
tural elements  in  the  use  of  leisure  time.  These  facilities 
for  recreation  and  leisure  time  use,  however,  are  neither 
experimental  nor  expressive  of  local  neighborhood 
needs.  They  afford  little  opportunity  for  independent 
thinking  or  independent  action.  They  supply  the 
staples  of  leisure  time  which  are  essential  to  normal 
physical  and  mental  development,  but  hardly  keep 
pace  with  the  times  and  seldom,  if  ever,  give  vent  to 
the  more  sporadic  intellectual  and  emotional  needs  of 
the  people  which  manifest  themselves  in  independent 
and  progressive  thinking  and  deep  emotional  expression. 
The  local  government  in  all  its  work  must  comply 
with  a  recognised,  established  and  well  crystallised 
standard  of  recreational  needs.  At  this  point  govern- 
ment must  stop  and  individual  initiative  begin.  The 
leadership,  whether  that  be  along  the  line  of  art, 
science,  literature,  or  politics  must  at  this  point  be 
given  the  opportunity  for  self  expression.  The  govern- 
ment can  furnish  the  physical  facilities  for  the  expres- 
sion of  this  leadership,  but  at  this  point  it  must  stop. 
The  schools,  halls,  public  open  spaces,  etc.,  should 
und^r  simple  and  democratic  regulation  be  placed  at 
the  disposal  of  the  people  of  the  community  and  the 
neighborhood  be  permitted  to  work  out  for  itself  the 
requirements  for  self  expression.  In  others,  the  Com- 
munity Centre  must  be  the  free  avenue  for  the  use  of 
leisure  time,  physically  maintained  by  local  govern- 
ment but  free  to  utilise,  express  and  exchange  ideas 
representing  the  growing  intellectual  and  emotional 
trend  of  the  locality  or  its  component  factors,  whether 
they  be  large  groups  or  limited  factions  representative 
of  specific  types  of  ability,  thought  or  belief. 

9 


130  THE  SOCIAL  SURVEY 

A  careful  census  of  what  the  people  do  with  their 
leisure  when  made  by  individual  accounting  and  relating 
to  a  large  number  of  individuals  will  soon  show  that 
the  leakage  in  the  leisure  time  of  our  people  is  socially 
and  politically  just  as  wasteful  to  this  democracy  as 
the  cruel  leakage  in  human  life  due  to  anti-social 
industrial  conditions  which  still  linger  in  our  midst. 
The  suggestions  for  the  utilisation  of  the  facilities  for 
leisure  time  use  afforded  by  the  community  resulting 
from  such  an  inquiry  can  hardly  be  fore-shadowed  here. 
Such  studies  have  been  made  by  the  People's  Institute 
of  New  York  with  the  result  that  a  very  momentous 
movement  for  the  re-organisation  of  leisure  time  use 
has  been  made  in  that  great  metropolis. 


EDUCATION. 


HPHE  subject  of  education  in  a  community  is  one 
•*•  so  generally  of  common  concern  and  touches 
so  many  aspects  of  community  life  .that  little  need 
be  said  in  favor  of  including  a  study  of  the  educa- 
tional facilities  in  the  body  of  a  social  survey. 

Education  is  the  most  powerful  agency  in  modern 
democracy.  It  is  the  only  means  of  social  progress 
that  has  remained  unquestioned  and  the  public  school 
still  stands  as  the  purest  example  of  a  democratic 
institution  which  is  ready  to  rise  to  heights  that  so 
far  have  not  been  fully  appreciated.  It  is  upon  the 
school  that  organisation  and  efficiency,  "the  harmonis- 
ing of  individual  effort  with  the  effort  of  all,"  depend. 

A  study  of  the  educational  facilities  of  a  community, 
.to  be  exhaustive,  would  necessitate  the  advice  of  an 
educator  and  the  experience  of  a  person  familiar  with 
the  details  of  modern  school  administration.  Such 
;  aid,  however,  is  beyond  the  reach  of  most  communities 
•  and  the  work  is  left  in  the  hands  of  laymen  whose 
opinion  concerning  the  fitness  and  efficiency  of  educa- 
tional work  must  be  based  upon  concrete  simple  facts, 
clearly  and  closely  related  to  the  problems  of  educa- 
tion. 

I  have  dealt  with  the  education  of  the  adult  in  the: 
chapter  on  Leisure  and  shall,  therefore,  confine  the 
discussion  in  this  chapter  to  tha  school  system  as 
found  in  our  various  communities'  and  their  gradation 
from  the  lowest  to  the  most  advanced  institutions. 

That  there  is  honestftttssatisfaction  with  the  present 
131 


EDUCATION  133 

methods  and  achievements  of  the  public  school  system 
is  clearly  evident  from  the  fact  that  scores  of  intensive 
surveys  have  been  completed  recently  in  some  of  the 
largest  cities  of  the  country  and  that  new  experiments 
are  constantly  being  tried  in  both  public  and  private 
institutions.  These  manifestations  of  dissatisfaction 
with  what  has  so  far  been  accomplished  are  full  of 
promise  for  a  new  era  in  American  education  that  will 
harmonise  social  needs  with  individual  potentialities 
and  co-ordinate  the  national  and  racial  elements  of 
the  people  by  conserving  and  utilising  native  abilities 
as  an  asset  to  industrial  efficiency  and  American 
democracy. 

With  this  task,  American  education,  as  the  goal,  the 
social  survey  must  begin  with  an  accounting  of  the 
child  elements  in  the  community,  the  school  facilities, 
the  school  methods  and  the  school  results  in  the  light 
of  the  actual  needs  of  those  to  be  educated  both  in 
terms  of  industrial  and  social  efficiency. 

The  accounting  of  the  child  element  may  be  carried 
out  by  the  regular  school  census  if  done  with  care, 
intelligence  and  due  regard  to  its  use  as  a  basis  for 
measuring  the  efficiency  of  the  school  system  in  making 
education  universal  and  checking  up  the  enforcement 
of  the  compulsory  education  laws. 

The  school  census  which  is  taken  independently  by 
each  community  while  checking  up  the  work  of  the 
school  and  the  enforcement  of  the  law  has  a  much 
greater  significance  than  has  so  far  been  given  to  it, 
if  its  full  value  could  be  realised  and  utilised  by  the 
school  authorities  and  the  surveying  forces.1 

lThe  school  census  generally  covers  all  persons  between  five  or 
six  years  and  twenty  years  of  age. 


134  THE  SOCIAL  SURVEY 

Some  of  the  questions  that  could  be  answered  by  the 
school  census  are  as  follows: 

1.  What  is  the  actual  school  population  of  the  community  and 
what  is  its  potential  school  population? 

2.  What  is  the  average  age  of  children  on  entering  school  and 
what  is  the  average  age  on  leaving? 

3.  What  is  the  rate  of  progress  of  children  by  age  according 
to  grades? 

4.  In  what  ways  do  the  foreign  children,  according  to  national- 
ity, differ  from  the  native  children  in  age  and  grade  distribution? 

5.  WThat  proportion  of  the  children  are  ignorant  of  the  English 
language  according  to  age,  sex  and  nationality  and  what  is  their 
distribution  throughout  the  school  grades  of  the  school  system? 

6.  What  proportion  of  the  children  according  to  sex,  national- 
ity and  age  are  above  or  below  their  normal  grades? 

7.  What  is  the  distribution  of  children  leaving  school  accord- 
ing to  age,  sex  and  nationality  of  parent? 

8.  What  are  the  fields  of  endeavor  into  which  children  go  after 
leaving  school  and  what  is  the  relation  of  their  school  prepara- 
tion to  this  endeavor? 

9.  How  does  the  distribution  of  the  children  according  to  age, 
sex,  nationality,  grade,  compare  with  similar  distribution  in  the 
school  system  of  other  cities? 

10.  What  is  the  distribution  of  the  sizes  of  families,  occupation 
of  parents,  and  age  distribution  of  children  as  related  to  the  age 
at  which  school  children  go  to  work? 

Where  private  or  parochial  schools  exist,  the  census 
should  cover  these  schools  separately  with  a  view  to 
establishing  bases  of  comparison  for  standards  of 
efficiency.  This  may  place  before  the  respective 
authorities  of  the  different  types  of  schools  a  strong 
stimulus  for  the  improvement  of  methods  of  organisa- 
tion and  teaching. 

During  recent  years  considerable  attention  has  been 
directed  toward  the  child  of  subnormal  or  abnormal 
mentality  and  the  physically  disabled.  A  census  of 


The  Public  School  of  Tomorrow 

A  natural  wy  for  our  children  to  live  and  learn 

•its? 


.  Two  Schools  in  One  Building 

*iool  is  represented  on  chart  by  boys.and  the  other  by  girls 
( art  represents  a  study,  work  and  play  school  day 
tils  are  instructed  in  Arithmetic,  Unguagtffeadino,  History 
"graphy.-aiso  trained  in  workshops,auditorium,g>/nnas»um 
by  grounds. 

)0  Children  were  on  part  time  in  Philadelphia  schools  ttoyor 

Khools  would  give  these  children  thatwhichthecit/owe^  them 
opportunity  forgrowthand 


Chart  prepared  by  the  Philadelphia  Public  Education  Association. 


136  THE  SOCIAL  SURVEY 

such  children  is  an  indispensable  asset  to  proper  school 
organisation.  It  is  due  to  the  exceptional  child  that 
the  school  system  place  at  its  disposal  the  facilities  for 
utilising  its  full  intellectual  powers  while  on  the  other 
hand  it  is  due  to  the  average  normal  child  that  we  place 
nothing  in  its  way  towards  utilising  the  teaching 
facilities  of  the  school  system  without  being  held  back 
by  the  mentally  subnormal. 

A  careful  examination  of  the  results  of  the  school 
census  will  reveal  the  need  for  the  following  special 
provisions  within  the  school  system,  if  the  require- 
ments of  all  classes  of  children  are  to  be  met: 

1.  Schools  for  truants  and  incorrigibles.    (Parental 
school.) 

2.  Schools  or  classes  for  backward  children. 

3.  Classes  for  recently  arrived  immigrant  children. 

4.  Elementary  industrial  schools  for  retarded  chil- 
dren. 

5.  Classes   for  the   mentally   defective.      (Feeble- 
minded.) 

6.  Classes  for  epileptics. 

7.  Schools  for  crippled  children. 

8.  Industrial  schools  for  part  time  training  in  co- 
operation with  local  industrial  plants. 

9.  Schools  or  classes  for  the  blind. 

10.  "       "         "       "       "  deaf. 

11.  "       "         "       "       "  children  of  exceptional 
mentality. 

12.  Open  air  schools. 

The  examination  of  the  school  facilities  and  their 
adequacy  in  meeting  the  local  needs  as  discovered  by 
the  school  census  can  easily  be"  counted  out  by  any 


EDUCATION  137 

group  of  intelligent  citizens  familiar  with  educational 
methods  and  able  to  interpret  the  simple  statistical 
data  that  an  ordinary  school  census  contains. 

THE  SCHQOL  AND  THE  CHILD. 

The  universal  relationship  between  the  potential 
school  population  and  the  actual  school  population 
has  been  discussed  above.  There  are,  however,  definite 
tests  of  school  efficiency  that  are  not  necessarily  subject 
to  universal  interpretation,  but  depend  rather  upon 
the  test  which  can  be  applied  to  the  school  work 
through  the  relation  of  its  products  to  the  community. 
Reading,  writing  and  arithmetic  are  the  three  essentials 
of  public  school  education.  They  form  what  might  be 
called  the  common  denominator  of  public  school  work. 
The  complex  community  and  industrial  life  under  which 
the  children  leaving  school  must  live,  however,  places 
the  test  of  school  efficiency  far  beyond  the  common 
means  of  expression  which  the  three  "R's"  represent. 

A  study  of  the  placement  of  all  or  a  good  share  of 
the  school  children  leaving  school  during  one  year  and 
the  failures  as  well  as  the  achievements  of  the  children 
placed  in  wage  earning  occupations  will  do  more 
towards  clearing  up  the  perplexing  problems  of  the 
educational  system  than  any  of  the  pedagogical  dis- 
cussions that  might  be  carried  on  by  pedagogs  and 
tax  payers.  This  study  of  the  placement  of  children 
and  their  successes  and  failures  may  determine  both 
the  possible,  although  only  immediate,  distribution 
of  the  children  according  to  their  probable  occupational 
distribution,  which  should  be  used  as  a  basis  for  the 
preparation  of  the  school  curriculum,  as  well  as  an 
index  of  the  failure  of  the  schools  to  train  the  future 


13$  THE  SOCIAL  SURVEY 

workers  in  the  essentials  required  by  the  every  day 
tasks  of  American  industrial  and  business  life. 

Should  such  a  survey  extend  over  a  period  of  five 
years  the  results  might  be  used  as  a  basis  for  a  complete 
recasting  of  the  educational  system  of  the  community, 
so  as  to  make  it  fit  into  the  economic  and  social  require- 
ments that  the  young  worker  must  face  on  entering 
upon  the  task  of  earning  a  living. 

Consultations  with  employers  of  young  workers  as 
to  the  requirements  of  their  industry  and  the  problems 
of  meeting  those  requirements  with  young  workers 
leaving  the  schools  should  constitute  the  main  basis 
of  such  a  study.  Beyond  this  point  much  information 
might  be  gained  from  the  study  of  the  problems  and 
conditions  met  by  the  young  workers  as  they  conceive 
these  problems  and  as  they  endeavor  to  meet  them. 

The  shifting  in  the  occupations  of  the  young  workers 
and  the  final  successful  placements  might  assist  in 
the  development  of  a  technique  for  local  vocational 
training  and  guidance,  the  former  being  quite  as  im- 
portant as  the  latter. 

BASIC  EDUCATIONAL  QUESTIONS. 

Aside  from  the  broader  survey  work  special  questions 
relating  to  the  administration,  service  and  efficiency 
of  the  schools  must  be  answered  through  the  survey. 
These  questions  should  relate  to  the  following  phases: 

1.  Administration,  dealing  with  methods  of  handling 
the  affairs  of  the  schools. 

2.  School  Service  and  Community  Needs,  dealing  with 
the  educational  needs  of  the  community  from  the  point 
of  view  of  the  number  and  character  of  the  people  to 
be  trained,   and   the  relations  between  the  existing 


EDUCATION  139 

educational  facilities  and  the  training  needed  to  meet 
the  social  and  industrial  demands. 

3.  Efficiency,  dealing  with  the  type  of  work  done  by 
the  schools,  the  returns  for  money  invested  in  educa- 
tion, etc. 

With  these  three  lines  of  inquiry  in  view,  let  us  con- 
sider some  of  the  most  important  questions  bearing 
on  each. 

ADMINISTRATION. 

1.  How  are  the  members  of  the  school  committee  or  school 
board  elected  or  appointed?     What  is  their  number,  how  long  do 
they  serve,  how  are  they  paid?     What  active  committees  and 
sub-committees  have  been  appointed?     What  are  their  duties, 
how  long  have  they  served,  what  have  they  accomplished? 

2.  What  is  the  total  expense  for  public  education,  is  the  money 
derived  from  a  special  tax  or  from  the  general  public  funds,  is 
the  county  or  state  assisting  in  the  expenses  and  for  what  pur- 
poses is  this  assistance  given? 

3.  In  what  proportion  are  the  expenditures  on  public  schools 
distributed  between  teacher's  salaries,  maintenance,  repairs,  con- 
struction, etc.? 

4.  Is  the  system  of  accounting  connected  with    the    public 
schools  department  up  to  date  and  efficient? 

5.  Are  school  books  furnished  by  the  school  department,  and 
what  is  the  system  of  buying  and  distributing  books? 

6.  Is  a  truant  department  maintained,  and  what  is  its  organi- 
zation, relation  to  the  school  department,  method  of  work  and 
legal  backing,  number  of  truant  officers,  salaries,  etc.? 

SCHOOL  SERVICE  AND  COMMUNITY  NEEDSTT- 

1.  What  is  the  total  capacity  of  the  different  grades  in  the 
public  schools,  what  is  the  number  of  children  in  each  grade,  are 
children  in  the  higher  grades  or  higher  schools  ever  rejected  be- 
cause of  lack  of  room? 

2.  What  is  the  average  number  of  pupils  per  teacher  in  each 
grade  and  are  cases  of  overcrowded  classes  common? 


140  THE  SOCIAL  SURVEY 

3.  Are  schools  for  feeble  minded,  backward,  defective  and  crip- 
pled children  maintained,  are  they  sufficiently  large  to  meet  the 
community?     How  are  children  committed  to  these  schools? 

4.  What  schools  for  professional  or  industrial  education  are 
maintained,  what  is  their  character,  capacity,  cost  of  mainten- 
ance? 

5.  What  institutions  for  higher  learning  are  found  in  the 
community  which  have  official  recognition  and  are  intended  to 
meet  the  educational  needs  of  the  community,  what  is  their  capac- 
ity, organization,  cost  of  maintenance? 

6.  Are  kindergartens  maintained  in  the  public  schools  of  the 
poorer  sections  of  the  community,  and  if  so,  what  is  their  number 
and  capacity? 

7.  Are  evening  schools  for  foreigners,  ignorant  of  the  English 
language  maintained,  what  is  the  attendance,  cost  of  mainten- 
ance, organization,  etc.? 

8.  Are  evening  schools  and  public  lectures  for  adults  main- 
tained, what  was  their  character,  number  and  attendance  dur- 
ing the  last  school  year? 

9.  Is  industrial  education  part  of  the  school  curriculum,  is  it 
compulsory  or  optional,  what  are  the  trades  taught  and  how  long 
are  the  courses? 

10.  What  industrial  schools  are  maintained  by  the  community 
and  by  private  agencies  for  the  purposes  of  meeting  the  indus- 
trial needs  of  the  community,  what  is  their  capacity  and  what 
number  of  their  pupils  have  gone  into  the  local  industries  as 
skilled  workers  within  the  last  five  or  ten  years? 

11.  Is  any  effort  being  made  to  adjust  the  common  school  to 
the  obvious  needs  of  the  local  industries? 

12.  Are  scholarships  and  apprenticeships  for  industrial  educa- 
tion in  schools  and  shops  available  to  the  pupils  of  the  public 
schools,  what  is  their  purpose  and  character? 

EFFICIENCY. 

1.  What  are  the  requirements  for  teachers'  certificates  in  each 
grade? 

2.  What  are  the  salary  schedules  for  teachers  and  principals? 

3.  What  has  been  the  training  and  experience  of  the  super- 
intendent and  the  principals  of  the  various  schools? 


EDUCATION 


141 


Comparative  Expenditures  for  Schools  Last  Year 
in  Montclair,  N.  J.  and  Greenwich 


FOR  EVERY  DOLLAR  THAT 


Montclair 
Spent 


Salaries       I 
Repairs        i 
Fuel          I 
Supplies 
Furniture 

Insurance 

Sight  Schools 
School  Gardens 

Summer  Schools 
Open  Air  Schools 
Manual  Training 
Buildings 
Other  Expenses 


. 


Greenwi  ch 
Spent 

452  cents 

|2  dollars 
,63  cents 
J-9  cents 
r?6  cents 


Nothing 
Nothing 

Hothing 

nothing 

Bothing 

cents 
r  cento 


22 
ollars 


FROM   THE   SCHOOL   SURVEY    REPORT   ON   THE    GREENWICH    COSTS. 
A  striking  method  of  comparing  Costs. 


142  THE  SOCIAL  SURVEY 

4.  What  was  the  number  of  repeaters  last  year  in  the  various 
graded  schools,  and  what  in  the  opinion  of  the  Superintendent  of 
Schools  and  the  school  committee  are  the  main  causes  that  pro- 
duce repeaters? 

5.  What  is  the  cost  to  the  community  of  the  repeaters  in  pro- 
portion to  total  expense  upon  school  maintenance? 

6.  Are  defective  and  backward  children  sent  to  special  schools 
or  are  they  retained  in  the  regular  classes? 

7.  Are  special  classes  for  foreign  children  unacquainted  with 
the  English  language  maintained? 

8.  Are  school  reports  published  regularly  and  do  the  reports 
deal  with  the  distribution  of  expenditures,  school  population, 
number  of  pupils  dropped  from  the  rolls,  repeaters,  absences  and 
truancy,  appointments  and  changes  of  teachers  in  various  grades 
and  needs  of  the  department  with  comprehensive  evidence  as  to 
such  needs? 

9.  Are  facilities  and  rules  for  reporting  class  room  conditions 
provided  and  what  is  the  system  followed? 

In  connection  with  the  general  consideration  of  the 
public  school  system,  a  study  of  the  colleges  and  univer- 
sities in  the  locality  may  be  undertaken  with  a  view 
to  ascertaining  whether  the  facilities  offered  by  these 
institutions  may  be  of  service  to  the  public  schools 
and  in  what  manner  this  service  can  ,be  secured.  In 
some  instances  special  courses  for  the  purpose  of  assist- 
ing the  teachers  in  service  to  keep  in  touch  with  the 
newer  movements  and  ideas  on  education  may  be 
introduced  into  Universities  and  Colleges,  if  the  needs 
are  properly  ascertained  and  clearly  presented. 

PRIVATE  EDUCATIONAL  AGENCIES. 

Aside  from  the  public  school,  the  College,  University 
and  the  library,  almost  any  community  offers  certain 
educational  opportunities  which  are  worthy  of  note 
and  which  can  often  be  made  more  efficient  and  broad- 
ened in  service  by  a  more  general  knowledge  of  their 


EDUCATION  143 

existence  and  co-operation  with  other  private  or  public 
agencies.  The  nature  of  some  of  these  agencies  is 
suggested  in  the  following  questions: 

1.  What  is  the  number  of  social  settlements  in  the  community, 
what  is  the  nature  of  their  work,  how  are  they  maintained,  are 
they  located  where  they  are  most  needed,  etc.? 

2.  Are  there  historical,  botanical  and  zoological  collections, 
industrial  and  art  museums  or  any  other  facilities  for  the  exhibi- 
tion of  objects  of  educational  and  artistic  value? 

3.  Are  public  lectures  offered  by  any  agencies  and  what  is  the 
character  of  these  lectures? 

4.  Are  the  churches  doing  any  educational  work  aside  from 
their  religious  services  and  if  so  what  is  the  extent  and  nature 
of  the  work  done? 

5.  What  are  the  special  private  educational  institut  ons  main- 
tained in  the  community,  what  is  their  scope,  capacity  and  extent 
of  work? 

6.  Are  any  of  the  private  educational  agencies  assisted  by  the 
local  government,  county  or  State,  and  if  so  to  what  extent  and 
for  what  purpose? 

Particular  communities  will  probably  present  special 
facilities  and  problems,  and,  altho  considerable  ground 
can  be  covered  by  following  the  outline  above  suggest- 
ed, much  valuable  information  will  be  secured  in  the 
course  of  the  inquiry  which  will  have  a  direct  bearing 
upon  the  subjects  herein  considered  but  which  cannot 
be  dealt  with  fully  here. 

EDUCATIONAL  STATUS. 

The  educational  facilities  of  a  community  and  the 
racial  and  industrial  make  up  of  the  population  deter- 
mine the  educational  status  which  should  be  ascertained 
for  the  purpose  of  comparing  the  efficiency  of  the  school 
system,  its  service  to  the  community  and  the  educa- 
tional problem  presented  by  the  foreign  elements. 


144  THE  SOCIAL  SURVEY 

The  facts  relating  to  the  educational  status  are  of 
statistical  nature  and  can  easily  be  ascertained  from 
the  local  school  department  and  the  state  or  Federal 
Census.  The  following  are  the  facts  to  be  ascertained : 

1.  What  is  the  number  of  adult  illiterates  in  the  community, 
by  age,  sex  and  place  of  birth? 

2.  What  is  the  number  of  foreign  born  persons  who  cannot 
read  or  speak  the  English  language,  by  age  and  sex? 

3.  What  is  the  number  of  pupils  in  the  public  schools  who  fin- 
ished the  grammar  schools  course  and  the  number  of  pupils  who 
finished  the  first,  the  second,  the  third,  and  the  fourth  years  of 
the  high  school? 

4.  What  is  the  number  who  finish  the  special  schools  courses 
provided  for  industrial  education  as  compared  with  the  total 
who  begin  such  training? 

The  above  four  questions  will  serve  as  a  measure 
of  the  work  of  the  public  schools  and  also  indicate  the 
task  that  is  still  to  be  performed  in  order  to  make 
illiteracy  impossible  and  the  privileges  of  the  public 
schools  of  the  most  general  service. 


WELFARE  AGENCIES. 

IN  every  locality  there  are  certain  agencies  and 
organizations  which  through  continuous  and  self- 
sacrificing  efforts  are  endeavoring  to  counteract  and 
remedy  social  ills,  to  remove  conditions  producing 
social  waste  and  as  far  as  possible  to  promote  the 
development  of  the  community  along  permanent,  con- 
structive lines. 

The  number  and  character  of  the  philanthropic 
agencies  in  a  community  should  be  an  index  of  the 
social  problem  in  such  a  community  if  private  philan- 
thropy, the  city  and  State  are  meeting  their  obligations 
properly,  and  are  determined  to  avoid  undue  social  leak- 
age. On  the  other  hand  the  efficiency  of  philanthropic 
agencies  in  meeting  the  social  problems  before  them 
is  the  sure  criterion  of  the  type  of  service  rendered 
and  is  the  only  means  of  insuring  sufficient  and  efficient 
service  without  waste  to  the  public  or  loss  to  those 
who  are  directly  or  indirectly  affected  by  local  problems. 
Social  science  is  still  in  its  infancy  and  practical  sociol- 
ogy so  far  has  not  clearly  pointed  the  way  towards 
constructive  and  scientific  social  service;  therefore, 
the  origin  of  each  kind  of  welfare  agency  can  not  always 
be  traced  to  the  beginning  of  the  problem,  but  rather 
to  a  spasmodic  and  sometimes  temporary  awakening 
of  the  public,  the  church  or  the  state,  to  effects  rather 
than  to  causes  of  evils.  Many  of  the  social  remedies 
applied  are  make-shifts  and  palliatives  which  are  in- 
tended as  a  temporary  relief  of  the  evils  already  created, 
rather  than  the  prevention  of  the  conditions  which 
10  145 


146  THE  SOCIAL  SURVEY 

produce  them.  This  misconception  has  resulted  in 
many  communities  in  a  considerable  number  of  ill 
conceived  and  poorly  organized  societies  and  organi- 
zations which  have  for  their  aim  the  relief  or  cure  of 
social  evils  without  regard  to  the  relation  of  these  evils 
to  the  whole  of  the  social  system,  and  much  of  the 
work  done  is  unscientific  and  wasteful. 

As  philanthropic  work  through  the  various  welfare 
agencies  is  the  foundation  upon  which  the  remedial 
work  of  the  community  rests  and  as  upon  its  methods 
and  results  depend  not  only  the  welfare  of  the  poor, 
but  the  peace  and  happiness  of  the  whole  community, 
it  is  important  to  consider  these  agencies  as  minutely 
as  possible. 

A  classification  of  charitable  and  philanthropic 
agencies  must  of  necessity  be  arbitrary,  and  hard  and 
fast  lines  are  as  difficult  to  draw  between  the  activities 
of  such  agencies  as  between  the  functions  of  human 
society.  The  classification  which  we  suggest  in  this 
bulletin  and  which  should  be  used  as  a  guide  in  group- 
ing various  welfare  agencies  is  based  upon  the  most 
important  functions  of  such  agencies  and  in  the  course 
of  a  survey,  only  the  main  line  of  service  should  be 
considered.  The  following  grouping  should  be  used : — 

1.  Charitable  relief,   including  all  agencies,   State, 
municipal  or  private,  whose  work  consists  in  aiding 
the  poor  through  material  relief. 

2.  Charitable   relief   with   religious   aim,    including 
relief  agencies  which  are  carrying  on  religious  pro- 
paganda in  connection  with  their  work. 

3.  The  group  "homes"  should  include  all  institutions 
which  provide  shelter  for  persons  of  various  ages  who 
are  wholly  or  partially  dependent  for  their  support  on 


WELFARE  AGENCIES  147 


these  institutions.  This  group  should  include  homes 
for  the  defectives,  for  the  aged  and  the  homeless  feeble 
minded,  crippled,  convalescents,  as  well  as  such  insti- 
tutions as  provide  shelter  for  which  they  receive  part 
payment,  such  as  the  Y.  M.  C.  A.  and  the  various 
workingmen's  and  working  girls'  homes. 

4.  Sanitary  relief  and  education  should  be  the  agencies 
which  deal  with  health,  such  as  various  health  organi- 
zations, hospitals,  anti-tuberculosis  and  district  nurses 
associations,  milk  stations  and  other  agencies  of  similar 
character. 

5.  Leisure  time  agencies  should  include  settlements, 
playgrounds,    special   schools,    museums   and   lecture 
service,  community  centers,  co-operative  theatres,  etc. 

6.  Protective  agencies  should  include  such  organi- 
zations as  interest  themselves  in  the  protection   of 
minors,  young  women  and  animals. 

7.  Industrial    aid    includes    employment    agencies, 
special  means  of  providing  temporary  employment, 
day  nurseries,  etc. 

8.  Civic  agencies  should  include  such  activities  as 
deal  with  the  improvement  of  local  conditions,  activi- 
ties for  securing  legislation  involving  the  welfare  of 
the   community  and   other  militant   agencies   whose 
effort  is  of  a  social  character. 

In  some  communities  it  is  probable  that  other  types 
of  agencies  will  be  found  and  the  discretion  of  the 
committee  on  the  survey  should  be  resorted  to  in 
formulating  a  classification.  It  is  quite  certain,  how- 
ever, that  a  very  large  majority  of  the  agencies  found 
will  be  amenable  to  the  classification  above  sug- 
gested. 

In  considering  the  efficiency  of  these  various  agencies, 


148  THE  SOCIAL  SURVEY 

the  following  questions  should  be  asked  in  connection 
with  their  work: 

1.  What  is  the  main  purpose  or  purposes  of  each  individual 
agency? 

2.  To  what  extent  is  the  purpose  of  the  agency  in  accord  with 
its  actual  service? 

3.  Who  are  the  managers  and  how  are  they  elected  or  appoint- 
ed?    (Give  the  social  service  connection  of  each  member) 

4.  How  does  the  agency  select  its  beneficiaries?     Are  religious, 
racial  or  national  lines  emphasized  or  favored? 

5.  Is  it  affiliated  with  some  larger  city,  state  or  national  organ- 
ization? 

6.  Are  the  sources  of  revenue  public,  private  or  both?     (State 
how  much  from  each  source.) 

7.  What  has  been  the  financial  history  of  each  agency  during 
the  last  ten  years? 

8.  How  is  the  revenue  distributed  between  the  various  lines 
of  activity,  as  well  as  in  relation  to  equipment,  administration, 
service,  relief,  etc.? 

9.  How  are  accounts  kept  and  how  often  are  they  audited? 

10.  Are  financial  reports  published  periodically  and  are  these 
reports  presented  in  a  form  that  is  easily  understood  by  the 
public? 

11.  Are  social  workers  employed  to  carry  on  the  work,  and  if 
so,  how  many  and  what  are  their  salaries,  training  and  experience? 

12.  Are  volunteer  workers  used,  if  so,  how  many  and  what  has 
been  their  training  and  experience? 

13.  What  changes  in  the  scope,  policy  and  method  of  work  of 
each  organization  have  taken  place  during  the  last  ten  years? 

14.  Are  accurate  records  of  cases  kept,  and  if  so,  to  what  extent 
are  they  used  in  measuring  the  extent  and  efficiency  of  the  work 
of  each  year? 

15.  Are  the  records  of  the  various  agencies  of  similar  character 
and  sufficiently  similar  in  form  to  admit  of  comparative  study  of 
the  work  of  each  group  of  agencies  of  the  same  type? 

16.  To  what  extent  does  the  State  or  municipal   government 
exercise  control  over  the  work  of  each  group,  whether  they  re- 
ceive public  funds  or  not? 


WELFARE  AGENCIES  149 


17.  What  are  the  methods  of  raising  funds  from  the  public  and 
what  is  the  annual  cost  involved  in  the  raising  of  such  funds? 

18.  Is  there  a  Bureau  of  Registration  or  exchange  of  informa- 
tion which  registers  cases  dealt  with  by  social  agencies  which  is 
used  in  order  to  avoid  duplication  and  to  what  extent  is  this 
Bureau  used  by  the  social  agencies  of  the  locality? 

19.  Is  there  competition  or  co-operation  between  the  various 
agencies  of  the  same  type  in  the  city? 

20.  Are  the  facilities  of  each  agency  used  to  full  capacity  and 
if  not  why  not? 

With  the  facts  outlined  in  the  above  questions  ascer- 
tained, a  general  conception  of  the  social  equipment 
of  the  community  would  be  made  possible  by  a  careful 
interpretation  of  the  facts  gathered.  In  the  next 
chapter  we  will  deal  with  the  more  specific  questions 
as  related  to  the  various  types  of  social  agencies. 


POVERTY  AND  DEPENDENCY 


•r 


In  the  chapter  on  Industries  and  Wages  we  have 
dealt  extensively  with  the  industrial  problems  to  be 
considered  in  a  survey.  Strictly  speaking,  the  present 
chapter  should  be  entitled  Economic  Problems  and 
Dependency  but  the  treatment  of  this  subject  from 
the  standpoint  of  the  community  entails  so  many  lines 
of  inquiry  and  the  facts  are  so  scattered  and  difficult 
to  obtain  that  it  seems  advisable  to  consider  the  more 
limited  aspects  of  economic  conditions,  namely,  poverty 
and  dependency,  which  are  the  most  concrete  and  sim- 
ple expressions  of  "community  economics"  and  its 
failures.  Poverty  and  dependency  are  the  synthesis 
of  the  conditions  which  cause  our  social  mal-adjust- 
ment,  particularly  industrial  mal-adjustment,  inef- 
ficiency and  impotency.  They  are  the  fruits  of  our 


150  THE  SOCIAL  SURVEY 

lack  of  social  foresight  and  of  the  wastefulness  of  our 
human  resources. 

Owing  to  the  absence  of  a  definite  line  of  demarca- 
tion between  self  support  and  poverty,  and  also  be- 
cause of  the  decided  difference  of  opinion  between 
experts  as  to  the  necessary  wage  needed  for  a  normal 
standard  of  living,  all  consideration  of  the  subject  of 
poverty  and  dependency  will  have  to  be  based  upon 
facts  relating  to  persons  and  families  aided  by  charitable 
agencies  rather  than  upon  the  number  of  persons  and 
families  in  need  of  aid.  The  investigation  dealing 
with  actual  aid  given  has  the  advantage  of  being  based 
upon  conditions  easily  ascertainable  and  concerning 
which  there  can  be  no  difference  of  opinion,  except 
as  to  degree. 

The  subject  of  poverty  is  clearly  distinct  from  that 
of  dependency,  the  former  implying  financial  conditions 
which  require  aid  in  the  form  of  means  of  subsistence, 
while  the  latter  is  a  condition  which  involves  not  only 
lack  of  means  of  subsistence,  but  such  other  physical, 
moral  and  educational  care  as  is  generally  required 
by  persons  who  are  physically,  mentally  or  morally 
defective  or  feeble,  and  who,  owing  to  their  economic 
conditions,  must  be  placed  with  organizations  main- 
tained for  this  purpose. 

POVERTY. 

To  discuss  the  causes  of  poverty  would  be  to  enter 
upon  an  extensive  study  of  our  whole  social  system, 
but  to  make  a  study  of  the  poor  of  a  community  and 
the  direct  causes  of  their  poverty  is  much  more  within 
the  scope  of  a  survey  as  is  here  suggested.  The  facts 
concerning  the  number  of  poor  families  and  individuals 


POVERTY  AND  DEPENDENCY  151 

under  the  care  of  charitable  agencies  can  be  ascertained 
more  or  less  accurately  from  the  records  of  the  local 
charitable  societies,  the  records  of  the  overseers  of 
the  poor,  church  relief  organizations,  and  other  relief 
agencies. 

It  must  be  borne  in  mind,  however,  that  the  records 
of  relief  agencies  represent  only  the  individuals  and 
families  who  have  been  actually  dealt  with  by  the 
agencies,  and  do  not  include  the  vast  array  of  econom- 
ically subnormal  families  and  individuals  who  either 
refused  to  apply  for  aid  or  are  unknown  to  the  relief 
giving  agencies. 

Some  light  may  be  thrown  upon  the  amount  of 
poverty  as  expressed  in  relief  giving  by  securing  answers 
to  the  following  questions: 

1.  What  is  the  number  of  families  and  individuals  who  received 
aid  during  the  last  year  and  what  is  the  average  size  of  each 
family?     (Inquire  into  sex,  age,  nationality,  occupation,  etc.) 

2.  What  are  the  relief  agencies  of  the  locality  and  what  are 
their  annual  budgets  for  administration  and  relief? 

3.  What  are  the  conditions  or  restrictions  under  which  relief 
is  furnished? 

4.  Does  the  municipality  maintain  a  poor  department  and 
what  are  the  conditions  under  which  relief  may  be  obtained?     Is 
favoritism  for  political  reasons  shown? 

5.  What  are  the  main  causes  for  dependency  as  far  as  the 
records  show? 

6.  What  proportion  of  the  dependent  families  or  individuals 
may  be  attributed  to  preventable  causes  such  as  industrial  acci- 
dents, preventable  sickness,  low  wages,  irregularity  of  employ- 
ment, failure  to  insure  against  death  of  head  of  family  and  other 
similar  causes? 

7.  What  provisions  are  available  for  the  employment  of  the 
industrially  subnormal  who  could  at  least  partly  pay  for  their 
own  support? 

With  the  facts  relating  to  the  above  questions  a 


152  THE  SOCIAL  SURVEY 

hand  and  the  experience  in  securing  the  information, 
the  value  of  the  records  upon  which  they  are  based  will 
be  more  accurately  estimated.  A  classification  of  causes 
of  poverty  may  be  prepared  along  the  following  lines : 

1.  Cases  of  poverty  due  to  the  death  of  chief  wage 
earners. 

2.  Illness  or  old  age  of  the  chief  wage  earner. 

3.  Lack  of  employment  of  chief  wage  earners  or 
other  members  of  family  contributing  largely  towards 
family  support. 

4.  Irregularity  of  employment,  strikes,  lock  outs,  etc. 

5.  Insufficiency  of  earnings  for  family  needs. 

6.  Low  wages. 

7.  Absence  of  head  of  family  through  desertion  or 
imprisonment. 

8.  Drunkenness  or  other  vices  of  chief  wage  earner 
or  house  keeper. 

9.  Poor  management  due  to  ignorance. 

The  results  obtained  will  differ  in  different  com- 
munities and  in  order  to  add  value  to  the  classification 
of  cases,  additional  information  concerning  the  nation- 
ality, place  of  birth,  age  and  occupation  of  the  bene- 
ficiaries of  charitable  agencies  should  be  added  to  the 
general  classification  of  the  causes  of  poverty.  This 
classification  will  add  considerable  weight  to  the  mass 
of  evidence  collected  and  may  assist  in  determining 
the  policy  of  charitable  societies  in  such  cases  as  the 
necessity  for  piecing  out  the  wages  where  the  chief 
wage  earner  is  able  bodied  and  capable  of  doing  a  good 
day's  work,  but  is  underpaid;  or  in  a  case  where  the 
chief  wage  earner  is  in  prison  working  for  the  State 
and  the  family  is  without  support. 


DEPENDENCY  153 

Throughout  the  investigation  of  poverty  it  must 
constantly  be  borne  in  mind  that  the  work  is  of  little 
value  without  a  consideration  of  the  industrial  con- 
ditions which  have  been  outlined  elsewhere. 

DEPENDENCY. 

As  was  stated  at  the  beginning  of  this  chapter, 
dependency  means  a  condition  of  poverty,  which,  aside 
from  the  lack  of  means  of  subsistence,  is  caused 
by  physical,  mental  or  moral  defects  or  deficiencies 
such  as  require  special  care  on  the  part  of  some  organi- 
zation or  agency  to  which  such  persons  are  entrusted. 
The  facts  concerning  such  persons  can  easily  be  ascer- 
tained from  the  local  and  state  institutions,  whether 
they  be  public  or  private,  if  adequate  records  are 
available. 

The  facts  concerning  dependency  may  be  ascertained 
through  the  following  inquiry: 

1.  What  institutions,  private  and  public,  care  for  the  insane, 
feeble  minded,  epileptic,  crippled,  aged,  abandoned,  orphan  or 
dependent  children?     What  are  the  conditions  for  admission  to 
each  institution,  what  is  the  cost  of  maintenance,  under  whose 
auspices  are  they  conducted,  how  are  funds  obtained? 

2.  What  is  the  total  number  of  inmates  in  each  institution  and 
if  a  State  or  county  institution,  what  is  the  number  of  local  in- 
mates? 

3.  What  efforts  are  being  made  in  each  institution  to  make  the 
inmates  self  supporting? 

4.  How  many  have  been  discharged  within  the  last  five  years 
from  each  institution  and  what  has  become  of  them  so  far  as  the 
institution  is  aware? 

5.  How  are  discharged  dependents  followed  up  after  their  dis- 
charge? 

6.  Are  dependents  placed  in  private  families,  and  if  so,  how 
are  the  families  chosen  and  what  control  does  the  placing  agency 
have  over  the  families  with  whom  dependents  are  placed? 


t 


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DEPENDENCY  155 

7.  Does  the  State  exercise  control  over  institutions  for  depend- 
ents and  in  what  manner  is  the  control  exercised? 

8.  Is  there  a  child  placing  agency  in  the  community  and,  if  so 
what  is  the  scope  of  its  work? 

9.  Are  there  institutions  in  the  community  which  are  over- 
crowded while  others  of  the  same  type  are  not  being  used  to  their 
full  capacity? 

10.  What  effort  is  being  made  to  return  dependent  children 
or  adults  to  their  families  as  soon  as  the  families  are  in  a  position 
to  care  for  them? 

11.  What  is  being  done  to  rehabilitate  families  with  a  view  to 
placing  responsibility  for  their  dependent  members  upon  them? 

INSTITUTIONAL  EQUIPMENT. 

Within  recent  years  facts  have  come  to  light  which 
show  a  very  pressing  need  for  careful  supervision  of 
institutions  for  dependents.  The  accommodations  are 
frequently  inadequate,  the  sanitary  provisions  a  menace 
to  the  health  of  the  inmates  and  the  general  care  in- 
sufficient to  meet  even  the  lowest  standards  of  living. 
The  institutions  for  children  and  especially  for  babies 
have  a  mortality  rate  of  from  50  to  80  per  cent,  of 
their  wards  and  in  the  care  of  older  dependents  the 
neglect  verges  on  or  actually  takes  the  form  of  cruelty. 
In  order  to  avoid  these  abuses  a  careful  study  of  the 
interior  of  each  institution  is  imperative.  Annual 
reports  and  publicity  are  insufficient  and  frequently 
misleading;  only  the  careful  inspection  of  the  interior 
of  the  institution  and  the  intelligent  scrutinising  of 
records  can  be  relied  upon  for  accurate  information. 
An  institution  that  refuses  access  to  its  records  or  its  plant 
at  any  reasonable  time  and  without  previous  notice  should 
have  no  right  to  operate  in  the  community. 

As  a  guide  in  all  such  inspections  I  have  outlined 
the  following  questions  which  may  well  be  used  by  the 


156 


THE  SOCIAL  SURVEY 


CHART  SHOWING   DISTRIBUTION  OF  FEEBLE  MINDED  IN  MASSACHU 
SETTS  INSTITUTIONS,   WAITING  ADMISSION  AND  IN  THE  STATE. 

From  the  Report  of  the  Committee  on  the  Protection  of  the  Feeble 
Minded  of  the  Massachusetts  Society  for  the  Prevention  of  Cruelty 
to  Children. 


INSTITUTIONAL  EQUIPMENT  157 

survey  organization  in  the  study  of  the  individual 
institutions  for  dependents. 

A.     Organization. 

1.  Name  of  Organization. 

2.  Address. 

3.  When  organized?     If  incorporated,  when  and 

in  what  State? 

4.  Amount  of  capital  stock  if  any. 

5.  Objects  as  stated  in  charter. 

6.  Objects  as  carried  out  at  present. 

7.  If  a  religious  institution,  what  denomination  and 

under  what  supervision  or  control? 

8.  Are  beneficiaries  limited  to  any  particular  color, 

or  creed,  nationality,  marital  condition,  moral 
character,  age,  sex,  etc.? 

9.  If  an  institution,  what  is  the  capacity  for  each 

type  of  inmate? 

B.     Administration. 

10.  Names    of    officers — president,    vice-president, 

treasurer,  secretary,  executive  head,  chairman 
of  board  of  trustees. 

11.  Names  and  addresses  of  directors  or  trustees. 

Length  of  term. 

12.  Method  of  electing  each. 

13.  Number  of  paid  workers  (positions  held). 

14.  Training. 

15.  Number  of  volunteers  (in  what  department). 

16.  Are  records  kept?    If  so,  in  what  form?     (How 

complete?    Enclose  blank  copy). 

17.  If  institution,  what  form  of  investigation  is  done? 

a.  By  central  agency? 

b.  By  paid  or  volunteer  investigator? 

c.  By  committee  of  board  of  managers? 


158  THE  SOCIAL  SURVEY 

18.  Is  the  Registration  Bureau  used  for  all  or  only 

part  of  the  cases,  and  if  the  latter,  what  cases 
are  registered? 

19.  If  a  children's  institution,  is  school  maintained 

in  the  institution,  or  are  children  sent  to  public 
school? 

20.  What  is  the  method  of  placing  children  when 

this  is  necessary? 

a.  Where  placed? 

b.  Under  what  conditions? 

c.  Who  investigates  and  by  what  method  prior 
to  placement? 

d.  When  boarded  out  who  pays  cost? 

e.  What  supervision  is  given  after  placement 
and  for  how  long? 

f .  Average  number  of  visits. 

g.  Number  of  visiting  agents. 

21.  How  often  did  directors  or  trustees  meet  last 

year? 

22.  If  an  executive  committee,  how  often  did  it  meet? 

23.  If  a  finance  committee,  how  often  did  it  meet? 

C.     Resources  and  Income. 

24.  Value  of  real  estate  owned. 

25.  "       "  endowments. 

26.  "       "  other  assets. 

27.  Form  of  endowments. 

28.  Total  assets. 

29.  Debt  or  mortgages  on  real  estate. 

30.  Amount  of  other  outstanding  financial  obliga- 

tions.    (State  what  for). 

31.  Amount  of  insurance  on  real  estate,  $.  . . : 

On  equipment  and  other  assets,  $ 


INSTITUTIONAL  EQUIPMENT  159 

32.  When  does  fiscal  year  end? 

33.  Actual   income   and   expenditures   during  year 

ending 

34.  Has  the  institution  drawn  on  its  invested  fund 

or  endowments  to  meet  current  expenses? 

35.  Value  of  equipment.    (Give  classification  of  and 

value  of  each  class). 

INCOME  FROM: 

36.  Contributions. 

37.  Endowments. 

38.  Inmates  and  other  beneficiaries. 

39.  City. 

40.  County. 

41.  State. 

42.  Sale  of  products  of  institution. 

43.  All  other  sources. 

44.  Total  income. 

45.  Collection  of  funds: 

a.  Personally,  by  officers,  $ 

b.  By  salaried  employees,  $ 

c.  On  commission,  $. 

d.  By  correspondence,  $ 

e.  By  entertainments,  $ (By  whom 

given) . 

f.  By  advertising,  $ Cost  of  adver- 
tising, $ 

g.  What  per  cent,  is  paid  to  solicitors? 

46.  Give  names  and  addresses  of  persons  authorized 

to  solicit  funds. 

47.  What  business  checks  have  been  provided  when 

collectors  are  used? 
Is  their  full  time  given  to  collecting? 


160  THE  SOCIAL  SURVEY 

D.     Expenditures. 

49.  Salaries. 

a.  Supervisor. 

b.  Teaching  staff. 

c.  Domestic  service. 

50.  Food. 

51.  Clothing. 

52.  Maintenance  of  plant. 

53.  Heat. 

54.  Light. 

55.  Rent. 

56.  Interest  on  loans  or  mortgages. 

57.  School  supplies. 

58.  Furniture. 

59.  Other  supplies. 

60.  Cost  of  collection  of  funds. 

a.  Commissions. 

b.  Other  expenditures. 

E.     Handling  of  Funds. 

61.  Are  all  collections  deposited? 

62.  Are  bills  paid  by  check? 

63.  Who  approves  expenditures  and  in  what  manner 

are  such  approvals  given? 

64.  Are  vouchers  kept? 

65.  Are  accounts  audited,  by  whom  and  how  often? 

F.     Budget. 

66.  Is  annual  budget  made  up  at  beginning  of  fiscal 

year? 

67.  What  will  next  year's  budget  be?    (Give  detailed 

items) . 

68.  Name  sources  of  revenue  that  are  available  to 

meet  such  a  budget. 


INSTITUTIONAL  EQUIPMENT  161 

69.  What    special    needs    of    the    agency  are    ex- 

pected to  be  met  next  year  beyond  the  present 
work? 

70.  Sta.te  minimum  cost  of  meeting  such  need. 

G.     Co-operation. 

71.  Co-operation  with  other  organizations  as  to: 

a.  Territory. 

b.  Handling  of  special  cases. 

c.  Reference  of  cases  to  other  agencies. 

d.  Joint  conferences  on  cases. 

H.     Method  of  Admission  of  Inmates  or  Charges. 

72.  Investigation  by  whom? 

73.  Study  of  records  available  in  the  hands  of  other 

agencies. 

74.  Medical  examination  and  care  (by  whom). 

75.  Mental  examination  (by  whom). 

76.  Dental  examination  and  care  (by  whom). 

77.  Oculist's  examination  (by  whom). 

78.  Special  conditions  for  admission. 

I.     Publicity. 

79.  Willingness  to  furnish  information. 

80.  Publication  of  reports  and  how  often. 

81.  Character  and  accuracy  of  report. 

82.  Educational    work    done    outside   the   institu- 
tion. 

J.     General  Statement. 

Statement   indicating   the   alleged   reason   for   the 
maintenance    of    the    agency    and    its    distinguishing 
character  when  compared  with  other  institutions  of 
similar  character, 
ii 


162  THE  SOCIAL  SURVEY 

K.     Equipment. 
BUILDINGS. 

Location  of  buildings  in  their  relation  to : 

a.  Street  conditions. 

b.  Sewage  and  water  supply. 

c.  Open  spaces. 

d.  Churches. 
Ownership. 

a.  Owned. 

b.  Rented. 

c.  Free  rent. 

Size  of  each  building. 

a.  Area  occupied. 

b.  Stories. 

Number  and  use  of  rooms  according  to : 

a.  Floor  space. 

b.  Air  space. 

c.  Window  area. 

d.  Exposure. 

e.  Use  and  by  how  many  persons  for  how  long  in 

24  hours. 

f.  Methods  of  ventilation. 

g.  Wall  paper  or  paint. 

h.  Possibilities  for  washing  floors  and  walls  and 

how  frequently  done, 
i.   Ages  of  persons  occupying  each  room, 
j.    Sex  and  color  of  occupants. 

PLAYGROUND  FACILITIES. 
Front  size  of  yard. 

a.  Sod? 

b.  Dirt? 

c.  Paved? 


INSTITUTIONAL  EQUIPMENT 


163 


Rear  size  of  yard. 
Sides  size  of  yard. 
Equipment  of  yard. 
Fencing  of  yard. 

a.  Height. 

b.  Material. 
Nearest  park. 

a.  Name. 

b.  Distance. 
Public  square. 
Are  these  used? 
Under  what  conditions? 
Roof  in  use? 

a.  Needed? 

b.  Possibility  of  use? 

Suggestions  for  more  space  or  better  use  of  space. 

PKEVENTION  AND  SAFE  GUARDS. 
Fire  Escapes. 
Location 


Doors  opening 


in 
out 
Staircases. 

width 

location 

material 

rail — wood  or  iron 
Fire  extinguishers. 

location 

Ropes  and  other  devices. 
Fire  drills. 

organization 

frequency 

announced 


164  THE  SOCIAL  SURVEY 

Location  of  nearest  alarm. 
Directions  for  reaching. 

HEATING. 
Kind. 
Stoves. 

Description 

Number 

By  whom  controlled 

Protection 

Location 
Steam. 

Location  of  boiler 

Control  and  inspection 

Number 

Protection 
Hot  air. 

Number  of  furnaces 

By  whom  controlled 

Protection 

Location 
Fire  places. 

Number 

Location 

Protection 

Gas,  coal  or  wood 
Provision  for  moisture? 
Standard  temperature? 
Thermometers  in  all  rooms? 
By  whom  inspected? 
What  secondary  arrangement? 
Has  need  ever  occurred? 


INSTITUTIONAL  EQUIPMENT  165 

PLUMBING  AND  FIXTURES. 
Well  polished? 

Evidence  of  breaks,  leakage,  etc.? 
Any  odors? 

Regularly  inspected  by  city  inspector? 
Any  tube  or  temporary  gas  connections? 
BATH  ROOMS. 
Number  of  tubs? 

"  showers? 
"  washstands? 

Special  bath  room  for  infants? 
Tubs  elevated? 

Number  of  tubs  and  washstands? 
Number  of  housemaids'  sinks? 
Are  tubs  scrubbed  after  each  bath? 
TOILETS. 

Separate  rooms  for  boys  and  girls? 
Number  of  seats: 
Boys 
Girls 
Urinal? 

Paper  fixtures  and  paper? 
Tiled  floors? 
Finish  on  walls? 

Well  lighted  by  windows  and  ventilated? 
Automatic  flushes? 
Cleanliness. 

Disinfectant  or  deodorant? 
SmaJLtoilets  for  small  children? 
VENTILATION. 
I.     Artificial. 

What  system? 


166  THE  SOCIAL  SURVEY 

Size  and  number  of  fans? 
Temperature  of  pumped  air? 
Location  of  intake? 
Frequency  of  inspection? 
When  are  windows  opened? 

II.     Natural. 

Number  and  size  of  windows? 
Open  top  and  bottom? 
How  often  is  air  changed? 
Location  of  windows? 
Ventilating  devices. 
Transoms? 

Temperature  when  visited. 
Supposed  temperature. 
Fans  for  cooling  room? 

SCREENS. 
Throughout? 
Condition? 
Cleanliness. 
Any  openings? 
Netting  or  wire? 
Folding  or  complete? 

FLOORS. 

Bare  or  covered? 
Name  covering. 
Kind  of  finish? 
How  cleaned? 
How  often? 
Disinfectant  used? 
Dry  sweeping? 
How  often  scrubbed? 


EFFICIENCY  TEST  AND  CONTROL  167 

WOODWORK. 

Color? 

Condition? 

How  often  scrubbed? 

Poverty  and  Dependency  are  products  of  social 
maladjustment  and  their  consideration  is  only  second- 
ary in  a  general  study  of  social  conditions.  The  indus- 
trial problems,  the  efficiency  of  the  educational  system, 
the  proper  health  and  housing  control,  the  amusement 
facilities  and  their  character  and  the  many  aspects  of 
social  life  are  the  determining  factors  in  the  production 
of  poverty  and  to  them  the  main  attention  of  a  survey 
should  be  given.  The  existence  of  poverty  and  misery 
should  be  considered  only  as  an  index  of  the  intensity 
and  extent  of  social  maladjustment. 

EFFICIENCY  TEST  AND  CONTROL  OF  WELFARE 
AGENCIES 

The  multiplicity  and  variety  of  welfare  agencies 
constantly  coming  into  being  in  every  community  have 
placed  a  heavy  financial  burden  upon  the  community 
without  always  giving  to  the  community  a  fair  return 
on  the  investment  as  in  every  other  field. 

In  this  age  of  efficiency  the  charitable  efforts  intended 
to  meet  the  problems  arising  from  individual  short- 
comings and  social  maladjustments  are  coming  within 
the  realm  of  the  efficiency  expert.  The  business  man 
who  assumes  the  largest  responsibility  for  the  main- 
tenance of  welfare  agencies  is  eager  to  secure  the  highest 
possible  return  on  his  investment  in  " charity"  work. 
In  establishing  measures  of  efficiency  in  business  the 
standards  are  so  easily  determined  upon  that  it  is  not 
difficult  to  measure  the  return.  In  the  case  of  charity 


168  THE  SOCIAL  SURVEY 

work,  however,  this  is  not  true.  Inefficient  business 
carries  with  it  its  own  destruction.  In  charity  work, 
however,  inefficiency  is  more  difficult  to  detect  and 
may  continue  at  the  expense  of  the  public  without 
hindrance  from  anyone.  It  is  for  this  reason  that  it 
is  more  important  to  establish  standards  of  measure- 
ments of  the  inefficiency  of  welfare  agencies  than  it 
is  in  the  case  of  individual  business.  This  efficiency 
should  be  measured  along  three  distinct  lines: 

1.  The  efficiency  of  the  giver  in  selecting  the  agency 
or  cause  t'o  which  to  give. 

2.  Efficient  services  on  the  part  of  the  agency  re- 
ceiving the  support. 

3.  The  efficiency  of  the  agency  in  meeting  the  needs 
and  problems  of  the  community. 

Within  recent  years,  commercial  organizations  in 
the  form  of  Boards  of  Trade  and  Chambers  of  Com- 
merce have  undertaken  the  task  of  separating  the 
efficient  from  the  inefficient  organizations,  and  are 
determining  for  the  business  and  moneyed  people  the 
channels  into  which  their  bounties  should  flow.  There 
is  a  triple  motive  in  this  undertaking.  The  first  is  the 
desire  to  save  the  time  of  the  business  man  in  deter- 
mining upon  his  charities.  The  second  is  to  promote 
in  the  communities  the  charitable  work  that  is  most 
efficient  and  the  third  is  to  avoid  supporting  organiza- 
tions and  agencies  representing  movements  of  question- 
able character. 

This  effort  is  worthy  of  attention  especially  on  the 
part  of  the  so-called  professional  social  workers  who 
are  daily  called  upon  to  consider  and  assist  in  the  solu- 
tion of  local  problems  that  are  constantly  taking  on 
new  forms  and  requiring  new  treatment. 


EFFICIENCY  TEST  AND  CONTROL  169 

In  considering  the  efficiency  of  any  charity  or  welfare 
agency  there  are  three  definite  lines  of  thought  that 
present  themselves: 

1.  The  efficiency  of  methods  of  work. 

2.  The  use  of  funds. 

3.  The  need  or  fitness  of  the  service  rendered  by 
the  agency  to  the  community. 

All  standardizing  work  so  far  done  in  connection 
with  welfare  agencies  in  this  country  has  been  largely 
along  the  lines  of  improving  the  efficiency  of  methods 
and  in  developing  modern  systems  of  accountancy. 
This  may  have  helped  to  introduce  certain  business 
elements  into  welfare  work,  but  it  did  not  add  a  single 
element  to  the  efficiency  of  these  agencies  in  dealing 
with  social  problems  beyond  improving  service  already 
in  existence.  We  might  call  this  kind  of  efficiency  an 
attempt  to  crystallize  into  definite  form  machinery 
handling  all  existing  problems  without  regard  for  the 
evolution  of  community  needs  and  social  institu- 
tions. 

The  Boards  of  Trade  and  Chambers  of  Commerce 
have  developed  what  are  called  "  Endorsement  Com- 
mittees," varying  in  their  methods  of  work  from 
voluntary  committees  to  the  most  expensive  and  most 
highly  specialized  Bureaus  of  Charities  as  part  of  the 
general  undertaking  of  business  organizations. 

While  we  recognize  the  need  for  introducing  efficient 
methods  into  welfare  work  of  our  communities  and 
while  we  have  no  fault  to  find  with  the  desire  of  the 
financial  backers  of  our  welfare  agencies  to  protect 
themselves  against  imposters  and  inefficient  organiza- 
tions, which  are  daily  applying  to  them  for  assistance, 


170  THE  SOCIAL  SURVEY 

we  feel  that  the  standards  set  for  efficiency  and  economy 
by  the  Board  of  Trade,  Chamber  of  Commerce  or  a 
Bureau  of  Charities  are  wholly  inadequate  to  meet  the 
need  which  at  present  exists  for  sifting  welfare  agencies 
with  a  view  of  retaining  those  most  needed  and  com- 
pelling those  which  are  not  meeting  a  real  need  in  the 
community  to  discontinue  activities.  We  make  bold 
to  say  that  in  many  instances  inefficient  agencies 
operating  in  a  particular  community  are  entitled  to 
the  most  liberal  support,  while  other  so-called  efficient 
agencies  with  the  best  kind  of  accounting  systems  and 
most  up-to-date  methods  of  service  should  be  eliminated 
from  the  community  by  a  refusal  on  the  part  of  the 
public  to  support  them.  By  way  of  illustration  we 
might  consider  a  home  for  immoral  girls  which  has 
succeeded  in  securing  a  large  number  of  inmates  and 
which  is  conducting  a  model  institution  as  against  a 
smaller  and  less  efficient  organization  dealing  with 
preventive  work  which  endeavors  to  remove  the  con- 
ditions which  make  it  possible  for  young  women  and 
girls  to  lead  an  immoral  life  through  bad  home  con- 
ditions, poorly  supervised  dance  halls,  failure  on  the 
part  of  the  police  to  control  the  back  rooms  of  saloons 
and  other  similar  conditions.  We  can  readily  imagine 
the  latter  organization,  owing  to  lack  of  funds  and  the 
failure  on  the  part  of  the  public  to  realize  the  impor- 
tance of  removing  the  causes  of  immorality  among 
young  girls,  being  compelled  to  do  its  work  in  a  hap- 
hazard and  inefficient  manner.  Under  these  conditions 
it  could  be  readily  seen  how  an  endorsing  agency,  by 
refusing  support  to  an  organization  dealing  with  pre- 
ventive measures  and  giving  ample  aid  to  a  well  con- 
ducted institution  dealing  with  immoral  girls,  would 


EFFICIENCY  TEST  AND  CONTROL  171 

merely  allow  the  local  problem  to  increase  the  pro- 
duction of  institutional  care  instead  of  reducing  it. 

It  is  essential,  therefore,  that  the  endorsing  organiza- 
tion look  upon  each  agency  not  as  an  individual  or  a 
corporation  showing  results  as  a  unit  but  rather  in  its 
relation  to  the  broader  needs  of  the  community.  This 
form  of  endorsement  has  so  far  not  been  recognised 
by  any  of  the  endorsing  bodies  in  this  country,  because 
of  the  fact  that  they  have  looked  upon  welfare  agencies 
as  business  concerns  and  have  recognised  returns  for 
investments  on  an  institutional  rather  than  on  a  com- 
munity basis.  This  short  cut  toward  the  business 
man's  efficiency  given  through  the  endorsement  com- 
mittee of  a  business  organization,  is  bound,  we  believe, 
to  injure  rather  than  assist  in  the  solution  of  the  larger 
problem  which  the  business  men  are  anxious  to  relieve 
and  are  endeavoring  to  solve. 

The  history  of  philanthropy  in  this  country  is  marked 
by  a  very  generous  response  on  the  part  of  the  giving 
public  and  through  this  generosity  agencies  and  insti- 
tutions of  various  types  have  become  established. 
The  usefulness  of  many  of  these  agencies  and  institu- 
tions has  long  since  become  a  thing  of  the  past.  There 
are  thousands  of  legacies  in  the  United  States  today 
involving  millions  of  dollars  which  are  tied  up  by  wills 
so  narrow  in  their  social  conception  and  so  wholly  out 
of  harmony  with  modern  needs  that  they  have  fossilized 
the  path  of  social  reform  in  this  country.  The  business 
man,  ignorant  of  the  more  fundamental  principles  of 
social  reform,  imbued  with  the  principle  of  solid  invest- 
ments, continues  to  support  agencies  and  institutions 
which  should  have  been  allowed  to  die  through  lack 
of  public  support.  Their  continued  existence  hampers 


172  THE  SOCIAL  SURVEY 

more  progressive  activities  of  modern  social  endeavor 
which  have  within  recent  years  become  revolutionised 
through  a  better  knowledge  of  society  and  its  com- 
ponent factors. 

Were  we  willing  to  admit  that  business  efficiency  is 
a  standard  of  social  efficiency  when  applied  to  welfare 
agencies,  endorsements  are  still  open  to  criticism  for 
reasons  which  may  be  stated  as  follows: 

1.  The  deciding  upon  the  efficient  welfare  agency 
involves  an  artificial  process  of  elimination  of  other 
agencies  on  a  basis  which  may  be  subject  to  controversy 
due  to  difference  in  point  of  view. 

2.  An  endorsement  granted  on  the  basis  of  both 
efficiency  and  usefulness  at  a  given  time  would  be 
difficult  to  revise  when  such  an  agency  had  outlived 
its  usefulness. 

3.  The   deciding  upon  or  the  endorsement  of  an 
agency  does  not  involve  the  public.    Any  responsibility 
for  support  and  the  final  backing  that  such  an  agency 
might  get  would  remain  spasmodic,  and  would  not  in 
any  way  be  necessary  to  the  needs  of  the  community. 

4.  The  competition  between  agencies  will  never  be 
reduced  or  eliminated  through  endorsement  and  the 
agency  most  capable  of  obtaining  publicity  and  most 
active  as  a  soliciting  body  would  obtain  the  best  results. 

5  Experimental  work  which  would  not  be  recognised 
by  a  small  group  of  business  men  representing  the 
endorsing  committee  would  encounter  difficulties  at 
the  outset  because  endorsement  presents  the  best 
excuse  on  the  part  of  the  business  men  for  refusing 
to  grant  endorsement  to  any  enterprise  that  is  not 
already  recognised  by  the  endorsing  body. 


EFFICIENCY  TEST  AND  CONTROL  173 

In  the  last  analysis  the  whole  problem  of  endorse- 
ment revolves  around  existing  agencies  with  a  view 
to  separating  the  desirable  from  the  undesirable.  This 
policy  fails  to  recognise  the  fact  that  these  agencies 
are  not  in  themselves  those  designed  to  meet  adequately 
and  intelligently  the  problems  as  they  arise  from  day 
to  day. 

What  the  community  has  before  it  in  endorsing 
social  agencies  is  not  determining  upon  the  efficiency 
of  particular  organizations  or  institutions,  but  a  meas- 
uring of  the  character,  extent  and  intensity  of  the 
various  social  problems  facing  the  community  with 
a  view  to  securing  the  most  adequate  service  necessary 
to  meet  the  problems  that  exist.  To  do  this  a  very 
careful  survey  of  the  community's  social  liabilities  is 
absolutely  necessary,  and  this  can  only  be  done  through 
a  thorough  social  survey.  When  this  is  done  the  need  for 
agencies  both  in  existence  and  still  to  be  organized 
could  be  clearly  determined  upon  and  endorsement 
granted  upon  that  basis.  Society  is  not  a  static  unit 
but  keeps  shifting  and  moving  to  the  shifting  changes 
of  conditions  both  within  and  outside  of  our  com- 
munities. Institutions  are  therefore  entirely  only 
temporary  means  of  meeting  the  situation.  In  a  pro- 
gressive community,  they  may  serve  their  purpose  for 
a  time,  but  when  their  usefulness  becomes  lessened 
either  by  a  new  method  of  approach  and  treatment 
or  by  a  complete  change  of  society,  these  social  agencies 
should  be  eliminated  or  replaced  by  other  agencies 
better  adapted  to  existing  needs. 

It  is  not  advisable  for  social  workers  or  for  the 
giving  public  to  assume  that  endorsements  will  bring 
about  efficient  social  service;  all  that  can  be  hoped 


174  THE  SOCIAL  SURVEY 

for  is  that  they  will  eliminate  a  certain  number  of 
agencies,  some  of  which  may  actually  be  more  useful 
than  those  receiving  the  highest  endorsement  on 
account  of  honest  accountancy  and  business  ad- 
ministration. 

From  the  point  of  view  of  progressive  social  reform, 
if  we  may  be  permitted  the  term,  endorsement  may 
render  the  launching  of  new  movements  practically 
impossible.  It  is  also  true  that  many  social  agencies 
already  in  existence,  or  contemplated,  may  design  to 
interfere  with  the  moneyed  interests  in  the  community. 
Strong  representation  on  the  endorsement  committee 
coming  from  the  moneyed  group  would  withhold  en- 
dorsement in  spite  of  the  highest  ideals  embodied  in 
such  an  institution  and  regardless  of  the  honest  tenden- 
cy and  actual  need  for  such  an  institution  or  agency  in 
the  community. 

On  the  whole,  the  entire  policy  of  endorsing  charita- 
ble agencies  is  one  that  is  bound  to  present  serious 
dangers  to  social  work  in  America  unless  some  check 
is  provided  whereby  endorsements  would  not  be  granted 
on  the  basis  that  prevails  in  business  organizations. 
How  this  should  be  done  is  a  matter  that  should  com- 
mand the  attention  of  those  sincerely  interested  in 
the  constructive  handling  of  our  social  problems. 


CRIME. 


WITHIN  the  last  two  decades  a  broad  and  scien- 
tific point  of  view  concerning  the  causes  and 
prevention  of  crime  has  affected  both  the  law  and  pub- 
lic opinion.  Anti-social  acts  are  not  looked  upon  in  the 
light  of  injury  done  to  the  community  or  to  individuals, 
but  from  the  point  of  view  of  the  causes  such  as  hered- 
ity, environment,  ignorance  and  other  conditions  that 
conspire  to  produce  crime.  Pedagogy,  medical  science 
and  psychology,  economic  factors  and  hereditary  ten- 
dencies are  called  into  co-operation  in  determining, 
not  punishment,  but  methods  of  treatment  of  the 
criminal  that  would  make  of  him  a  useful  member  of 
society  and  as  far  as  possible  remove  the  causes  for 
future  anti-social  acts.  In  other  words,  crime  has 
become  a  matter  of  social  responsibility  in  the  same 
degree  in  which  illiteracy,  industrial  accidents  and 
poverty  are  matters  of  social  responsibility. 

The  line  of  distinction  between  the  degenerate,  the 
socially  inefficient  and  the  criminal  is  not  found  in 
the  character  of  one's  action,  but  in  the  treatment 
necessitated  to  meet  the  needs  of  such  individuals,  in 
order  to  protect  society  against  them  and  remove  the 
obstacles  in  the  way  of  their  useful  service  to  society 
and  themselves. 

Criminal  law  and  the  machinery  provided  for  its 
enforcement  are  turning  their  faces  from  punishment 
and  revenge  to  prevention  and  reform.  Legal  pro- 
visions with  hard  and  fast  lines  are  becoming  humanised 
and  their  application  is  becoming  a  problem  of  expert 

175 


176  THE  SOCIAL  SURVEY 

knowledge  of  human  nature  and  social  conditions 
rather  than  a  matter  of  learning  in  the  laws.  With 
these  tendencies  apparent  in  many  of  the  modern 
methods  of  dealing  with  crime  it  is  important  to  con- 
sider the  amount  of  criminality  existing  in  a  particular 
community  from  this  constructive,  economical  and 
human  point  of  view,  with  more  regard  to  the  inter- 
pretation and  application  than  the  content  of  the  law. 

JUVENILE  DELINQUENCY. 

Environment. 

Juvenile  delinquents  are  offenders  under  eighteen 
years  of  age  and  modern  practice  has  evolved  a  new 
and  distinct  system  of  dealing  with  this  type  of  delin- 
quent. As  a  large  share  of  juvenile  delinquency  is  the 
result  of  immediate  environmental  conditions  and  as 
the  offences  are  usually  of  a  minor  character,  it  is 
advisable  to  deal  with  conditions  surrounding  children 
which  have  been  shown  by  experience  to  be  influential 
in  producing  juvenile  crime. 

The  conditions  to  be  considered  are  generally  as 
follows : 

1.  Are  children  employed  in  street  trades,  what  is  the  charac- 
ter of  the  trades,  what  is  the  number  of  children  so  employed, 
their  ages,  sex,  and  parentage? 

2.  What  legal  restrictions  are  placed  upon  children  employed 
in  trades  and  how  are  these  legal  restrictions  enforced? 

3.  Are  children  under  fifteen  years  of  age  permitted  to  work 
in  shops  and  factories  with  adults  of-  the  opposite  sex  and  if  so 
what  supervision  is  used  in  such  places? 

4.  Is  the  sale  of  liquor  and  cigarettes  to  minors  under  police 
control  and  how  are  the  regulations  enforced? 

5.  Are  children  permitted  to  work  at  night  in  factories  and 
street  trades  and  if  so  what  are  the  hours  and  conditions  of  labor? 

6.  Is  obscene  literature  circulated  in  the  city  and  sold  to  minors 


JUVENILE    DELINQUENCY 


177 


THE   PROGRESS   OF  THE    UNADJUSTED    CHILD 

3M  THE  COMMUNITY-THROUGH  SPECIAL  AND  LEGAL  AGENCIES—  BACK  TO  THE  COMMUNITY 


COM  MUNITY 


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-  indicate*  the  various  routes  the  child  may  take  from  the  time  it 
iremoved  from  the  community  until  it  is  returned  to  the  community. 

indicates  the  points  at  which  the  community  agencies  listed  on  the  next 
page  could,  through  clinical  cooperation  with  special  and  legal  agencies, 
1  gnOse  the  cause  of  unadjustment  and  in  most  cases  bring  about  the 
:id's  adjustment  to  its  own  environment. 

MRAM  SHOWING  PROGRESS  OF  UNADJUSTED  CHILD  IN  NEW  YORK  CITY.    PREPARED 
I  Miss  MILDRED  TAYLOR  FOR  THE  JOINT  COMMITTEE  OF  THE  UNADJUSTED  CHILD 
OF  THE  PEOPLE'S  INSTITUTE  AND  THE  NATIONAL  COMMITTEE  OF  PRISONS. 


12 


178  THE  SOCIAL  SURVEY 

and  if  so  how  and  where  is  the  literature  obtained,  do  the  police 
attempt  to  control  such  sales,  etc.? 

7.  At  what  age  are  minors  permitted  to  enter  theaters  and 
other  amusement  place,  without  guardians? 

8.  Is  sex  hygiene  taught  in  the  public  schools  and  what  is  the 
system  in  use? 

9.  What  are  the  public  and  private  agencies  providing  free 
amusements  for  juveniles  and  are  they  so  distributed  throughout 
the  community  as  to  be  accessible  to  all  children  in  need  of  such 
amusements? 

10.  Are  the  services  of  a  child  protecting  agency  available  in 
the  community  and  if  so  what  is  the  legal  status,  the  method  of 
work  and  field  of  activity  of  such  agency? 

Although  throughout  the  above  list  of  questions  only 
problems  of  environment  are  considered,  the  problems 
of  heredity  and  the  physical  condition  of  juveniles 
should  constantly  be  kept  in  mind  in  dealing  with 
individual  cases,  both  before  and  after  offence  has  been 
committed. 

JUVENILE  DELINQUENCY  AND  COURT  PROCEDURE. 

The  offences  committed  by  juvenile  delinquents,  the 
number  of  offenders  in  institutions,  number  of  repeaters 
and  many  of  the  crimes  committed  in  adult  life  depend 
upon  the  methods  employed  in '  dealing  with  young 
offenders.  It  is  for  this  reason  that  considerable  at- 
tention should  be  given  to  the  problems  of  preventing 
juvenile  crime  and  redeeming  through  proper  care 
those  who,  owing  to  various  causes,  have  come  under 
the  care  of  the  courts. 

Some  of  the  questions  to  be  considered  in  this  con- 
nection are  as  follows: 


1.  Number  of  juvenile  delinquents  handled  in  the  community 
during  the  year  classified  by  sex,  age,  parentage,  offence  com- 
mitted and  disposition  of  the  case  by  the  court. 


JUVENILE  DELINQUENCY  179 

2.  Are  juvenile  cases  treated  by  the  court  in  special  sessions 
or  together  with  other  cases? 

3.  Is  a  particular  judge  appointed  or  selected  to  deal  with 
juvenile  cases  or  not? 

4.  Is  a  probation  system  in  use,  and,  if  so,  who  is  in  charge 
of  the  probation  work,  how  many  probationers  has  he  or  she  in 
charge  and  how  many  paid  and  volunteer  assistants  are  available? 
Do  the  paid  probation  officers  give  all  their  time  to  the  work? 

5.  What  is  the  proportion  of  probationers  for  the  year  preced- 
ing the  survey  who  have  not  been  rearrested  for  new  offences 
and  what  are  the  offences  for  which  they  were  placed  on  pro- 
bation? 

6.  Do  the  courts  work  in  co-operation  with  any  private  agen- 
cies in  the  care  of  the  children  brought  before  them  and,  if  so, 
what  is  the  legal  status  and  work  of  such  agencies? 

7.  Is  privacy  a  feature  in  the  juvenile  court  proceedings? 

8.  Is  parental  responsibility  for  the  crimes  of  juveniles  pro- 
vided for  by  law  and  if  not  does  the  court  take  account  of  parent- 
al neglect  in  treating  cases? 

9.  What  institutions  are  provided  for  the  confinement  of  juv- 
enile delinquents;   what  is  the  number  of  local  inmates  in  such 
institutions,  what  are  their  offences  and  penalties? 

10.  Is  the  system  of  indetermined  sentence  and  parole  in  use 
in  juvenile  courts  and  institutions  and  what  proportion  of  juven- 
niles  so  treated  have  been  returned  to  institutions? 

11.  What  trades  are  taught  in  the  juvenile  institutions  and 
are  they  related  to  industries  carried  on  in  the  community? 

12.  Do  the  institutions  for  delinquents  whenever  practical 
place  their    discharged  inmates  in  paying  positions  and  what 
have  been  the  results  obtained  and  difficulties  encountered  in 
this  work?     (Information  from  Superintendent  of  Institution  and 
Board  of  Directors.) 

13.  Are  truants  cared  for  in  institutions  for  delinquents  or  in 
some  separate  truant  or  parental  school? 

14.  Are  juveniles  detained  by  the  court  before  sentence  is  pro 
nounced  held  in  penal  institutions  or  in  some  private  or  public 
detention  home  especially  provided  for  this  purpose? 

15.  In  how  many  instances  are  the  causes  of  the  offence  trace- 
able to  parental  neglect? 


180  THE  SOCIAL  SURVEY 

16.  What  is  being  done  to  rehabilitate  the  home  prior  to  the 
return  of  a  discharged  delinquent  to  his  or  her  old  environment? 

17.  Do  the  probation  officers  endeavor  to  connect  up  families 
and  the  discharged  inmates  of  institutions  for  delinquent  children 
with  the  social  agencies  of  the  neighborhood  or  community? 

18.  Are  mental  and  physical  examinations  of  each  child  made 
both  prior  and  after  commitment? 

Answers  to  the  above  questions  will  not  only  give 
a  clear  idea  of  the  status  of  the  work  of  rehabilitation 
done  with  juvenile  delinquents,  but  will  point  the  way 
to  a  constructive  program  of  action  both  along  the  line 
of  better  methods  of  treatment  of  delinquents  and 
more  effective  preventive  measures. 


ADULT  CmME.-V' 


Unlike  the  conditions  prevailing  in  the  case  of  the 
juvenile  offenders,  adult  crime  is  extremely  difficult 
to  trace  to  its  cause ;  hence  the  study  of  causes  of  adult 
crime  will  not  be  considered.  It  must  be  borne  in 
mind,  however,  that  not  all  offences  treated  by  the 
courts  are  crimes  although  they  may  be  punishable  by 
law.  For  the  purposes  of  such  a  survey  as  is  here 
suggested  only  offences  against  the  person  and  against 
property  should  be  considered,  while  petty  offences 
against  city  ordinances,  drunkenness,  etc.,  should  as 
far  as  possible  be  disregarded. 

The  facts  concerning  crime  and  its  treatment  may 
be  ascertained  in  a  general  way  by  inquiring  into  the 
following : 

1.  What  is  the  total  number  of  persons  in    various    prisons 
and  jails  committed  in  the  locality,  what  are  their  offences,  ages, 
sex,  nationality  in  proportion  to  the  population  of  the  locality 
and  what  are  the  terms  they  are  serving? 

2.  How  many  persons  are  confined  because  of  failure  to  pay 


PLAN  FOR  MEDICAL  EXAMINATION  OF  PRISONERS. 
From  Leaflet  32  of  the  National  Committee  on  Prisons. 


182  THE  SOCIAL  SURVEY 

fines  imposed  upon  them  by  the  court  and  at  what  rate  are  fines 
paid  up  through  confinement? 

3.  Are  probation,  indetermined  sentence  and  the  parole  sys- 
tems in  use  in  the  courts  and  prisons  and  if  so  under  what  con- 
ditions are  they  applied? 

4.  What  officials  are  in  charge  of  the  probation  work,  what 
amount  of  time  are  they  required  to  give  to  their  duties,  how 
many  probationers  are  being  cared  for  by  each  probation  officer? 

5.  Is  a  medical  and  psychological  clinic  maintained  in  connec- 
tion with  any  of  the  courts  of  the  locality  and  do  they  examine 
all  or  only  special  cases? 

6.  Do  prisoners  such  as  drunkards  and  prostitutes  receive 
the  special  medical  care  they  need  while  in  confinement? 

7.  Are  professional  bondsmen  permitted  to  operate  in  the 
courts  and  what  are  their  methods? 

8.  Are  the  prisoners  in  the  various  institutions  taught  a  trade 
and  if  so,  is  it  suited  to  the  needs  of  the  community  and  the 
prisoner? 

9.  Is  contract  labor  carried  on  in  the  prisons  and  if  so,  what 
is  the  character  of  the  goods  manufactured;  what  is  the  pay 
derived  from  the  labor  of  each  prisoner;  what  does  the  community 
pay  for  the  support  of  the  institution  and  how  much  is  derived 
from  the  contractor;  is  the  industry  a  profitable  one  for  the 
worker  in  the  free  market? 

10.  Do  the  prisoners  share  from  the  profits  derived  from  the 
contracts  and  if  so,  to  what  extent?     If  not,  what  amount  of 
money  do  they  receive  at  the  time  of  their  discharge? 

11.  Do  dependent  families  of  prisoners  receive  any  aid  from 
the  State  during  the  prisoner's  confinement? 

12.  What  is  the  total  annual  expense  for  the  maintenance  of 
police,  courts,  prisons,  as  well  as  the  total  annual  loss  of  property 
through  crime? 

13.  What  follow  up  work  is  being  done  in  the  interest  of  the 
prisoners  after  discharge? 

14.  Are  any  agencies  available  for  the  temporary  care  and 
relationship  that  the  prisoners  need  after  discharge? 

15.  What  is  being  done  to  readjust  the  prisoner  to  a  normal 
social  environment  wherein  he  could  use  his  qualities  for  industry 
and  leadership  under  the  stimulus  of  friendly  relationships  and 
a  recognition  of  such  qualities  as  he  or  she  may  have? 


ADULT  CRIME 


183 


These  are  practical  questions  which  can  easily  be 
answered.  Problems,  such  as  feeding  of  inmates,  the 
sanitary  conditions  of  the  prison,  the  isolation  of 
contagious  diseases — such  as  tuberculosis — education 
of  prisoners,  etc.,  may  also  be  considered.  A  thorough 
inspection  of  the  prison  and  an  examination  of  the 
daily  routine  will  be  found  profitable  in  ascertaining 
the  merits  and  demerits  of  a  prison  system. 

This  ends  the  task  of  the  survey  in  so  far  as  the 
gathering  of  data  is  concerned,  and  as  poverty  and 
crime  are  the  greatest  elements  of  human  and  social 
waste,  it  is  most  fitting  that  the  work  of  studying  the 
community  should  end  here  and  the  facts  be  squarely 
faced.  In  the  following  chapter  we  shall  deal  with 
the  methods  of  collating  and  utilizing  the  information 
gathered. 


STATISTICAL  FACTS  AND  THE  SURVEY 

SOCIETY  functions  in  obedience  to  definite  forces, 
the  character,  relation  and  dependencies  of  which 
constitute  the  laws  of  social  mechanics.  As  in  the  field 
of  physical  mechanics,  so  in  social  mechanics  the  quali- 
tative analysis  of  the  forces  at  work  do  not  and  cannot 
be  taken  as  an  index  of  their  significance  in  the  function- 
ing of  individual  social  institutions  or  of  the  whole  of 
the  social  order.  As  in  the  study  of  chemistry,  so  in 
sociology,  quantitative  analysis  must  be  applied  in  order 
to  ascertain  the  differences,  changes,  relationships, 
values,  intensity  of  reaction,  etc.  In  society,  qualita- 
tive analysis  is  as  essential  as  it  is  in  chemistry  and 
mathematical  relationships  are  as  exact  as  they  are 
in  physics  or  mechanics. 

The  statistical  method  is  to  social  phenomena  what 
quantitative  analysis  is  to  chemistry  and  mathematics 
to  mechanics.  In  a  word  social  statistics  is  the  method 
of  quantitative  social  analysis. 

In  order  to  bring  the  above  discussion  closer  to  our 
own  daily  social  experience,  let  us  take  an  illustration 
from  one  of  the  most  widely  discussed  social  problems, 
— child  labor.  If  we  say  that  there  is  child  labor  in 
a  given  city  or  state,  we  are  at  once  aware  of  a  con- 
dition that  is  generally  acknowledged  to  be  undesirable, 
but  no  conception  of  either  the  extent  or  intensity 
of  the  problem  is  conveyed  by  this  statement.  It  is 
only  after  the  test  of  quantitative  analysis  or  statistical 
measurement  as  to  the  age  of  the  children  at  work  in 
proportion  to  the  total  number  of  children  of  the  same 

184 


STATISTICAL  FACTS  185 

age  in  the  community,  the  hours  of  work,  etc.,  are 
ascertained  that  the  problem  can  be  presented  as  a 
clearly  defined,  accurately  measured  condition  upon 
which  action  may  be  based. 

The  statement  of  a  condition  without  quantitative 
facts  makes  possible  divergent  and  confusing  opinions 
subject  to  interpretation  dependent  upon  the  experi- 
ence, point  of  view,  personal  interest,  knowledge  or 
ignorance  of  those  dealing  with  the  facts.  Statistical 
measurement  reduces  all  personal  differences  of  point 
of  view  to  one  common  denominator,  expressed  in 
numerical  form  which  is  as  near  conveying  the  same 
concept  to  all  as  the  human  mind  has  been  able  to 
devise  so  far. 

It  is  true  that  since  the  inception  of  the  application 
of  the  statistical  method  to  the  measurement  of  social 
phenomena  much  has  been  perpetrated  upon  the 
public  which,  under  the  guise  of  accurate  mathemati- 
cal tabulation,  served  selfish  ends  and  by  distorting 
and  misinterpreting  social  facts.  This  misuse  of  the 
method  should,  however,  not  be  taken  as  representative 
of  either  the  actual  or  potential  value  of  statistics  as 
a  method  of  social  analysis,  any  more  than  it  is  just 
to  attribute  to  the  study  of  chemistry  the  destructive 
effects  of  modern  explosives  as  employed  in  warfare. 
Honesty  of  purpose  in  statistical  interpretation  is  as 
necessary  as  it  is  in  any  other  field  of  science,  and 
misuse  that  is  made  of  statistical  interpretation  in 
misguiding  or  in  misinforming  the  public  is  as  much 
the  fault  of  the  ignorant  public  as  it  is  despicable  in 
the  statistician  who  takes  advantage  of  it. 

Throughout  this  book  we  have  asked  numerous 
questions.  Many  of  them  involve  the  use  of  the 


186  THE  SOCIAL  SURVEY 

statistical  method  of  study  and  represent  a  wide  range 
of  differences,  changes,  relationships  and  dependencies 
of  social  forces  upon  which  will  have  to  be  built  up  a 
picture  of  the  static  functioning  of  society  or  individual 
communities  and  from  which  will  be  devised  plans  for 
dynamic  action  that  will  yield  returns  of  a  constructive 
character  and  in  harmony  with  social  facts. 

It  is  not  possible  within  the  scope  of  this  work  to 
go  into  the  details  of  the  statistical  methods  as  applied 
to  society.  All  that  could  be  justly  expected  is  to 
point  out  the  need  for  its  use  and  refer  the  reader  to 
the  bibliography  which  gives  a  list  of  what  are  at 
this  time  considered  the  standard  works  on  the  statis- 
tical method  in  the  hope  that  the  surveying  forces  will 
venture  into  the  study  of  some  of  these  books  prior 
to  undertaking  the  task  of  tabulating,  correlating  and 
interpreting  the  information  gathered  in  the  course 
of  the  survey. 

Many  attempts  have  so  far  been  made  to  reduce 
the  technic  of  statistical  tabulating  to  simple  rules 
for  the  tabulation  of  material.  The  following  may 
be  cited  as  points  representative  of  such  rules:1 

1.  There  usually  should  be  as  many  different  tables 
as  there  are  distinct  groups  of  statistics  to  be  compared. 

2.  There  should  be  as  many  separate  headings  as 
will  properly  emphasize  the  main  facts  and  tendencies 
shown    by    the    statistics — while    those    whose    main 
columns  are  to  be  compared  should  be  adjacent  to  each 
other. 

3.  There  should  be  precision  in  the  stating  of  titles 
and  sub-headings  of  all  tables. 


J.  King,  Elements  of  Statistical  Methods,  p.  119. 


STATISTICAL  FACTS  187 

4.  There  should  be  a  practically  perfect  form  of 
table  before  any  statistics  are  entered. 

5.  There  should  be,  whenever  tables  are  large,  in- 
stead of  solid  horizontal  lines  of  figures  and  rules,  after 
every  fifth  line  or  so,  a  blank  line  as  a  guide  to  the  eye. 

6.  There  should  be  accuracy  as  to  every  item  and 
figure  in  all  the  tables — a  check  on  the  original  entries, 
the  totals  (by  adding  items  both  in  vertical  columns 
and  in  horizontal  lines),  the  percentages  (by  adding 
together  to  see  that  the  sum  equals  100  per  cent),  and 
all  arithmetical  operations. 

It  seems  to  the  writer,  however,  that  these  rules 
are  more  useful  to  the  trained  statistician  than  to  the 
lay  public.  The  large  amount  of  survey  work  done  in 
this  country  and  the  printed  reports  based  upon  these 
surveys  will  be  vastly  more  useful  as  guides  in  the 
planning  of  tables  and  tabulation  of  material  than  any 
of  the  abstract  rules  that  may  be  devised  by  the  ex- 
perienced statistician. 

In  tabulating  social  facts  it  should  be  remembered 
that  the  interdependency  of  these  facts  is  frequently 
so  close  that  it  is  preferable  to  begin  with  very  complex 
tables  involving  many  factors  in  order  that  such  com- 
parisons as  seem  to  indicate  nothing  of  significance 
may  be  eliminated  after  rather  than  before  they  are 
tested.  Simplicity  of  tabulation  is  valuable  only  in 
so  far  as  it  represents  the  synthetic  essence  of  previous 
tests  of  comparative  data  and  the  elimination  of  those 
which  do  not  represent  significant  social  differences. 
If,  for  example,  the  mortality  rate  from  tuberculosis 
seems  to  be  the  same  for  both  the  foreign  and  native 
born,  we  are  justified  in  presenting  tabular,  statistical 
data  regarding  the  mortality  rate  from  tuberculosis 


188  THE  SOCIAL  SURVEY 

for  the  population  as  "a  whole.  Such  statistics,  however, 
would  be  overlooking  an  important  social  element  if 
they  were  not  first  tested  as  to  the  existence  or  absence 
of  such  a  difference  in  the  mortality  rate. 

The  survey  has  an  important  place  as  an  educational 
force.  We  must  not  forget,  however,  that  simplicity 
frequently  involves  an  approximation  rather  than  an 
accurate  statement  of  fact  and  the  function  of  the 
survey  is  to  grasp  the  whole  complex  social  machinery 
of  society  first  and  reduce  the  explanation  of  this  com- 
plex machinery  to  its  simpler  terms  only  as  its  com- 
plexity is  difficult  for  the  public  to  understand. 

If  throughout  our  investigation  we  remember  that 
the  descriptive  generally  fails  to  convey  the  same  idea 
to  persons  of  differing  temperaments,  education  and 
experience,  and  that,  for  the  sake  of  accuracy,  wher- 
ever possible  a  terminology  that  expresses  facts  in 
measurable  terms  must  be  used  we  shall  have  come 
nearer  to  perfection  in  the  truthful  statement  of  facts 
than  through  any  other  means. 


SOCIAL  LEGISLATION  AND  THE  SURVEY. 


THE  task  of  completing  the  social  survey  is  insepar- 
able from  a  careful  and  thorough  examination  of  the 
many  federal,  state  and  municipal  laws  that  determine 
the  conduct  of  the  people  and  their  relation  to  the 
social  and  political  institutions  under  which  they  live. 
The  surveying  forces  will  find  that  there  is  hardly  a 
field  of  social  or  economic  endeavor  which  is  not  affected 
in  almost  every  phase  by  regulations  and  control  pro- 
vided by  one  of  the  three  governmental  authorities — 
the  federal,  state  or  municipal  government,  or  by  all 
combined.  No  social  problem  can  be  understood  with- 
out a  knowledge  of  the  laws  affecting  it. 

It  is  impossible  within  the  scope  of  this  work  to 
undertake  an  analysis  of  all  the  phases  of  social  legisla- 
tion that  must  be  considered.  As  the  social  facts  are 
ascertained  the  legal  aspects  of  the  problem  will  reveal 
themselves  and  the  law  enforcing  agencies  will  not 
fail  to  furnish  the  details  of  the  law  with  such  sugges- 
tions for  changes  and  improvements  as  experience  in 
the  course  of  the  performance  of  their  official  duties 
may  indicate. 

When  the  social  survey  is  completed  and  the  mass 
of  legislation  provided  for  the  control  of  existing  evils 
has  been  subjected  to  careful  analysis,  it  will  be  found 
that  the  status  of  the  laws  may  fall  into  one  of  the 
three  following  classes: 

1.  Legislation  adequate  with  adequate  provision  for 
enforcement. 

189 


190  THE  SOCIAL  SURVEY 

2.  Legislation  adequate  without  provision  for  en- 
forcement. 

3.  Neither   legislation   nor   enforcement   provisions 
adequate. 

When  legislation  is  found  inadequate,  the  usual 
practice  is  to  endeavor  to  obtain  legislation  purporting 
to  meet  the  needs.  The  draughting  of  such  legislation, 
however,  is  frequently  left  to  legally  minded  legislators 
or  attorneys  who  are  not  familiar  with  local  conditions 
and  local  needs,  who  have  not  studied -the  history -of 
legislation  upon  the  subject  to  be  dealt  with  and  who, 
in  many  instances,  find  it  most  convenient  to  copy  the 
laws  of  other  states  or  municipalities  as  the  most 
expeditious  way  out  of  a  difficulty  which  would  other- 
wise involve  much  study  and  deliberation.  The  result 
of  this  practice  in  the  securing  of  legislation  has  been 
a  struggle  between  contending  forces  for  compromises, 
not  in  the  interest  of  the  community  as  a  whole,  but 
in  the  interest  of  contending  private  interests.  The 
speculative  builder  opposes  adequate  housing  legisla- 
tion, the  liquor  interests  have  a  well  organized  lobby 
to  defend  their  interests  and  to  oppose  social  legislation 
affecting  them,  the  railroads  are  controlling  factors  in 
social  legislation  and  manufacturers  employing  child 
labor  do  not  hesitate  to  oppose  all  legislation  affecting 
the  industrial  welfare  of  children. 

The  result  of  this  struggle  for  social  legislation  has 
been  the  creation  of  a  great  mass  of  laws  consisting 
of  half  measures  granted  as  a  compromise  between 
social  justice  and  powerfully  organized  self  interest. 

The  survey  should  do  away  with  this  type  of  legisla- 
tion. If  the  facts  are  available  and  the  need  is  clear, 
no  compromises  should  be  necessary.  The  laws  should 


SOCIAL  LEGISLATION  191 

be  framed  not  as  the  last  legislative  word  of  some 
distant  community  echoed  in  our  midst,  but  as  the 
expression  of  immediate  local  needs.  Those  who  have 
dealt  with  legislation  know  that  there  is  no  science  of 
law,  but  there  is  a  scientific  method  of  legislation  and 
this  method  depends  upon  an  accurate  knowledge  and 
intelligent  use  of  social  facts. 

That  the  time  for  a  new  era  in  social  legislation  is 
dawning  is  evident  in  many  of  our  states  and  municipal- 
ities. 

The  function  of  the  political  representative  in  legis- 
lative bodies  in  this  country  is  slowly  becoming  reduced 
to  the  activities  of  a  clearing  house  of  public  opinion 
and  the  numerous  state  and  national  organizations, 
like  the  Child  Labor  committee,  are  at  work  upon  the 
broad  social  problems  which  have  been  within  recent 
years  the  province  of  legislative  enactment  and  are 
framing  and  urging  laws  which  neither  emanated  from 
nor  in  any  way  concerned  the  legislator.  This  type  of 
social  legislation,  prepared  by  leaders  in  highly  special- 
ised fields  is  a  step  in  the  direction  of  superseding 
parliamentary  deliberation  by  scientific  study  and  the 
formulation  of  laws  in  harmony  with  social  needs  and 
sociological  principles.  The  recent  developments  along 
the  lines  of  initiative  and  referendum  legislation  further 
emphasize  the  passing  of  the  day  of  parliamentary 
legislation. 

It  is  characteristic  of  law  to  deal  with  effects  and 
disregard  causes.  Our  penal  codes  are  the  best  ex- 
amples of  suctf  conglomerate  masses  of  social  impres- 
sionism and  medieval  absolutism  and  our  housing  and 
other  social  legislation  bear  the  marks  of  a  distorted 
social  vision  which  is  wholly  ignorant  of  social  factors 


192  THE  SOCIAL  SURVEY 

and  deals  with  evils  not  as  the  expression  of  many 
concurring  and  diversified  factors,  but  as  the  evil  itself, 
the  removal  of  which  can  be  socially  accomplished  by 
restrictive,  direct  regulation  and  legislation. 

Experience  shows  that  the  respect  for  law  is  not  depend- 
ent upon  its  social  value,  but  upon  the  manner  in  which 
its  application  affects  the  individual  upon  whom  its 
enforcement  has  a  direct  bearing. 

The  social  function  of  law  is  not  social  control  alone. 
Its  purpose  has  in  this  respect  been  confused  with  its 
requirements  and  where  the  problem  of  controlling 
evils  has  received  the  attention  of  the  public  and  its 
agents,  the  legislators,  the  result  has  been  a  series  of 
prohibitions  which,  in  many  instances,  have  tended 
to  aggravate  evils  by  affecting  those  whose  protection 
we  seek  in  a  manner  wholly  contrary  to  the  intent  of 
the  law.  We  find,  for  example,  that  strict  housing 
laws  may  reduce  building  enterprise  and  raise  rents; 
that  food  regulation  increases  prices;  that  compulsory 
education  may  increase  congestion  in  schools  and  lower 
efficiency;  that  child  labor  laws  increase  dependency; 
etc.  These,  however,  are  necessary  legislative  pro- 
visions which  have  come  to  be  recognised  as  the  pre- 
requisites of  civilised  countries.  What  we  have  failed 
to  recognise  is  the  fact  that  each  legislative  enactment 
must  fit  into  a  broader  fabric  of  a  legal  system  that 
will  meet  all  restrictions  with  sane,  economically  and 
socially  well  balanced  laws,  these  will  promote  and 
stimulate  conditions  in  society  which  will  reduce  the 
need  for  restrictive  legislation  to  a  minimum  and  pro- 
mote positive  conditions  which  will  make  child  labor 
unnecessary,  bad  housing  uneconomical  for  the  owners, 
dependency  impossible  through  proper  insurance  laws 


SOCIAL  LEGISLATION  193 

and  school  crowding  beyond  the  need  of  any  com- 
munity. 

We  have  enough  negative,  prohibitory  legislation 
in  most  communities;  much  of  it  reveals  complete 
ignorance  of  the  fundamentals  of  the  mechanics  of 
social  action  and  still  more  lacks  harmony  with  actual 
needs  which  it  is  intended  to  meet. 

The  survey  furnishes  a  broad  basis  for  scientific 
legislation  that  would  promote  positive  action  and 
guide  the  conduct  of  the  people  along  positive  con- 
structive lines  that  are  creative  of  desirable  social 
conditions  rather  than  prohibit  action  that  is  injurious 
to  the  social  order.  To  create  a  stimulus  toward  right 
action  rather  than  the  prohibition  of  wrong  doing  is 
the  positive  task  of  the  law. 


THE  FACTS  AND  THE  PEOPLE. 

'T^HE  equipment  for  social  thinking  which  our  public 
-*•  schools  are  prepared  to  give  to  their  pupils  is 
meagre,  inaccurate,  abstract  and  antiquated.  The 
survey  presents  the  first  opportunity  for  changing  and 
improving  the  equipment  that  the  average  citizen 
brings  from  his  public  school  education  by  affording 
at  least  in  some  fields  complete,  accurate  and  up- 
to-date  information  for  intelligent  social  thinking. 

The  problems  that  the  surveying  forces  will  meet, 
however,  will  not  be  in  the  accumulating  of  valuable, 
accurate,  concrete  facts  but  in  so  interpreting  and 
presenting  these  facts  as  to  meet  the  requirements  of 
the  narrow  gateways  of  the  ordinary  understanding 
of  the  average  citizen,  without  losing  sight  of  the  pos- 
sibilities that  the  concrete  possess  as  a  means  of  arous- 
ing interest  by  stimulating  the  imagination.  To  many 
the  revelation  of  facts  and  conditions  under  which 
they  are  living  and  which  are  thriving  in  the  very 
shadow  of  their  homes,  will  have  the  effect  of  the  dis- 
covery of  a  new  world  the  mysteries  of  which  they 
have  just  realised.  It  is  like  exploration  along 
the  lines  of  the  third  dimension  of  a  world  which  has 
heretofore  only  made  itself  known  to  them  in  two  di- 
mensions. 

In  preparing  the  material  for  public  consumption 
with  a  view  to  building  up  public  opinion  along  the 
lines  suggested  by  the  findings  of  the  survey,  recog- 
nition of  certain  definite  factors  is  imperative.  These 
factors  are  as  follows: 

194 


THE  FACTS  AND  THE  PEOPLE  195 

1.  The  average  mind  has  a  limited  power  for  con- 
centrated attention.     This  requires  all  statements  of 
facts,  in  whatever  form  they  may  be  presented,  to  be 
condensed  within  the  limited  compass  of  a  single  effort 
of  mental  concentration. 

2.  Interest  in  American  communities  fags  quickly 
and  the  educational  processes  designed  to  bring  the 
survey  facts   before   the   public   and   keep  attention 
focussed  upon  them  must  be  designed  to   present  in 
progressive  order  varying   phases  of    problems  with 
emphasis  upon  new  angles  that  would  hold  the  in- 
terest of  the  people  by  the  constantly  new  mysteries 
that  the  facts  reveal. 

3.  The  citizen  body  must  be  made  to  realise  a  pro- 
prietary interest  in  the  community  and  must  be  given 
credit  for  it  with  no  less  force  and  ingenuity  than 
is  customary  in  showing  how  they  are  cheated  and 
how  little  they  get  for  their  money. 

4.  The  stratification  of  the  population  along  econom- 
ic, social  and  cultural  lines  represents  strata  of  value 
concepts.     In  other    words,    while    in    the    accurate 
measurement  of  certain  evils  a  common  denominator 
expressed  numerically  conveys  to  all  the  same  numeri- 
cal content  in  terms  of  social  values,  each  stratum  of 
society  has  its  own  concept.    The  task  of  the  surveying 
forces  in  presenting  their  results  and   conclusions  is 
to  recognise  these  differences   in  value  concepts  and 
give  each  class  of  society  a  vision  of  the  situation  that 
would  lead  to  the  same  general  conclusions  without 
distorting  the  facts  and  at  the  same  time  recognising 
the  point  of  view  and  concept  of  each  class. 

5.  While  the  facts  themselves  should  not  be  clogged 
with  superfluous  explanatory  text,  a  little  imagination 


196  THE  SOCIAL  SURVEY 

in  the  presentation  of  such  facts  is  frequently  helpful 
in  intensifying  the  vision  of  the  myopic  public.  The 
following  statement  that  appeared  in  the  U.  S.  Bureau 
of  Education  Bulletin  20  for  1913  regarding  illiteracy 
in  the  United  States  is  both  imaginative  and  true  to 
the  facts.  "In  double  line  of  march,  at  intervals  of 
three  feet,  these  5,516,163  illiterate  persons  would 
extend  over  a  distance  of  1,567  miles.  Marching  at 
the  rate  of  25  miles  a  day  it  would  require  more  than 
two  months  for  them  to  pass  a  given  point." 

6.  The  survey  is  not  only  a  means  of  creating  a  civic 
mind  by  popular  education.  The  scientific  method 
applied  in  the  collection,  classification  and  interpreta- 
tion of  social  facts  has  a  value  far  beyond  its  utility 
as  a  means  of  popular  civic  education.  It  reveals 
fundamentals  upon  which  a  comprehensive  program 
can  be  outlined  and  the  technic  with  which  it  is  to 
be  carved  out  is  stated.  It  also  contains  data  of 
scientific  value  upon  which  a  positive  science  of 
Applied  Sociology  must  eventually  be  built  in  this 
country.  In  presenting  the  survey  findings,  therefore, 
this  last  but  wider  use  of  them  should  be  recognised. 
The  recognition  of  this  higher  phase  of  the  scientific 
utility  in  survey  work  is  bound  to  raise  the  standard 
of  survey  work  above  its  present  rather  low  level  of 
dilletantism. 

In  the  foregoing  discussion,  I  have  endeavored  to 
lay  down  some  broad  outline  suggestions  as  to  the  con- 
siderations to  be  kept  in  mind  in  the  educational 
campaign  that  should  follow  the  survey  in  order  to 
stimulate  social  thinking  on  the  basis  of  ascertained 
social  facts.  The  channels  through  which  such  a  cam- 
paign should  find  expression  and  the  types  of  publicity 
to  be  used  will  now  be  briefly  considered. 


THE  FACTS  AND  THE  PEOPLE  197 

THE  REPORT. 

In  our  effort  to  popularize  survey  facts  we  frequently 
confuse  their  scientific  character  as  an  instrument  for 
the  shaping  of  a  constructive  program  and  developing 
a  technic  of  efficient  service  with  their  educational 
value  in  stimulating  social  thinking  among  the  masses 
of  the  people.  The  survey  report,  containing  the  exact 
data  presented  in  scientific  form,  using  every  possible 
method  of  interpretation  that  the  social  sciences, 
statistical  method,  and  legislative  experience  place  at 
the  command  of  the  surveying  forces,  should  be  used. 
It  should  be  a  document  that  will  stand  the  test  of 
science  even  at  the  risk  of  becoming  technical. 

Whether  such  a  report  is  ever  published  and  dis- 
tributed to  the  general  public  is  of  little  import.  Its 
value  is  not  to  be  looked  for  in  the  effect  that  it  would 
have  upon  the  public  but  in  the  clear  vision  and  ac- 
curate concept  of  existing  conditions  that  it  would 
give  to  those  actually  at  work  upon  the  program  and 
those  who  are  to  constitute  the  leadership  in  carrying 
it  out.  While  the  public  wants  plausible  aphorisms, 
the  endurance  test  of  a  reform  movement  must  be 
found  in  scientific  interpretation  of  facts. 

PEOPLE'S  PUBLICITY. 

Separate  and  distinct  from  the  general  survey  report, 
the  preparation  of  campaign  material  is  perhaps  the 
most  difficult  task.  The  statement  of  facts  in  plausible, 
accurate  and  epigrammatic  form  requires  serious 
thought,  a  knowledge  of  the  habits  of  thought,  the 
traditional  methods  of  approach  to  local  problems,  the 
factional  differences  between  the  citizens,  the  social 
and  political  history  of  the  locality.  The  use  of  recog- 


198  THE  SOCIAL  SURVEY 

nised  religious  teachings,  the  universally  accepted 
moral  precepts,  the  patriotic  phraseology  of  the  day, 
the  innate  sense  of  justice,  the  taxpayer's  desire  for 
a  return  upon  his  investment  in  public  enterprise,  the 
feeling  of  responsibility  towards  children,  resent- 
ment against  being  fooled  and  cheated,  are  all  psychic 
factors  upon  which  the  publicity  for  the  education  of 
the  people  should  be  founded.  They  are  social  forces 
that  constitute  valuable  assets  in  the  work  of  stim- 
ulating social  thinking  and  the  educational  campaign 
of  the  surveying  forces  should  use  them  whenever  they 
can  be  made  to  serve  the  ends  to  be  attained.  The 
forms  that  the  information  for  the  general  public  may 
take  may  be  various. 

I.  Report  Abstract. 

Very  frequently  when  the  newspaper  publicity  of 
the  survey  has  been  such  as  to  give  reason  for  the 
belief  that  the  general  public  has  been  aroused  to  a 
keen  interest  in  the  results  of  the  investigation,  a  brief, 
epigrammatic,  clear  and  simple  pamphlet  containing 
the  striking  essentials  of  the  findings  with  telling  illus- 
trations will  be  found  valuable.  In  order  to  give  this 
publicity,  a  letter  forecasting  the  receipt  of  the  pam- 
phlet should  be  sent  to  each  voter  or  resident  who  is 
to  receive  one,  explaining  briefly  the  relation  of  the 
recipient  to  the  community  and  survey.  This  would 
add  a  personal  element  to  the  printed  page  that  would 
assist  in  making  it  more  effective. 

II.  The  Press. 

No  newspaper  can  afford  to  overlook  good  publicity 
material.  The  brief  survey  report  prepared  for  the 
people  as  an  abstract  can  be  expanded  and  used  in  the 


THE  FACTS  AND  THE  PEOPLE        199 

daily  press  with  the  best  of  results.  Charts,  photo- 
graphs and  even  simple  statistical  tables  may  often 
be  used  over  a  period  of  days  and.  weeks,  or  in  a  special 
edition  of  the  newspapers,  with  educational  results 
that  would  be  valuable  in  arousing  public  opinion  to 
the  local  needs  and  to  intelligent  thinking  as  to  the 
plans  to  be  pursued. 

The  newspaper  reading  habit  in  this  country  would, 
in  many  communities,  justify  the  preparation  of  a  com- 
plete series  of  charts,  photographs,  and  statistical  tables, 
dealing  with  local  conditions  and  conditions  elsewhere 
by  way  of  contrast  to  be  published  in  serial  order 
in  the  newspapers  instead  of  displayed  in  an  exhibition 
room.  The  piecemeal  manner  of  display  in  the  press 
may  in  some  cases  be  found  more  effective  if  shown 
continuously,  consistently  and  over  a  considerable 
period  of  time,  than  a  bewildering  exhibit  which  taxes 
the  attention,  memory  and  intelligence  of  the  average 
visitor. 

EXHIBITS. 

Experience  has  shown  that  an  exhibit  in  order 
to  be  effective  must  be  prepared  with  skill  and  knowl- 
edge of  the  various  facilities  for  presenting  material 
in  graphic  form.  Tests  of  the  effect  of  certain  types 
of  display  upon  the  attention  and  memory  have  been 
made  by  experts  in  the  field.  These  tests  have  been 
found  of  inestimable  value  in  the  preparation  of  such 
exhibits. 

Recent  years  have  witnessed  excellent  work  in  the 
field  of  social  exhibits.  The  Russell  Sage  Foundation 
and  many  other  philanthropic  as  well  as  commercial 
agencies  have  developed  a  technic  of  social  exhibits 


200  THE  SOCIAL  SURVEY 

that  is  very  effective  in  the  attainment  of  educational 
results. 

Amateur  social  exhibits  are,  in  the  opinion  of  the 
writer,  of  little  value.  The  services  of  an  expert  in 
the  field  are  imperative  in  order  to  make  the  exhibit 
effective  and  where  the  services  of  an  expert  are  not 
available  other  less  costly  means  of  publicity  should 
be  employed. 

While  large,  complex  exhibits  are  impractical  where 
expert  service  is  not  obtainable,  there  is  every  reason 
to  believe  that  a  few  charts  attractively  drawn  and 
striking  photographs  in  limited  number  relating  to  a 
given  subject  or  problem  could  be  used  effectively 
in  window  displays,  libraries  or  school  rooms  or  any 
other  public  places.  These  displays  should  relate  to 
one  subject  at  the  time  and  to  one  subject  only. 

THE  PUBLIC  FORUM. 

The  discussion  of  public  affairs  in  this  country, 
except  in  their  broadest  possible  aspects,  takes  place 
only  during  periods  preceding  election  and  relates  to 
issues  far  removed  from  the  every  day  knowledge  and 
interest  of  the  people.  The  social  survey  deals  with 
public  affairs  which  are  within  the  scope  of  every  day 
life  and  experience  and  touch  vitally  the  interests  of 
the  average  citizen.  The  public  school  lecture  hall, 
the  church  pulpit,  the  labor  union  meeting,  the  club 
auditorium,  the  monthly  meeting  of  men's  and  women's 
organizations  and  even  the  rather  uncertain,  sensation- 
hungry  crowd  of  the  street  corner  are  suitable  channels 
through  which  social  survey  information  can  and 
should  be  set  forth.  No  platform,  no  group  activity, 
should  escape  the  influence  of  the  survey  campaign. 


THE  FACTS  AND  THE  PEOPLE        201 

Wherever  people  come  together  to  talk  and  think  on 
issues  of  common  interest,  the  findings  of  the  survey 
should  have  a  large  place  in  the  deliberations. 

THE  PUBLIC  SCHOOLS. 

The  teaching  of  history  in  the  public  schools  has 
just  reached  the  promising  state  where  our  pedagogs 
are  convinced  that  the  methods  employed  in  the  teach- 
ing of  this  subject  are  inadequate  and  ill-suited  for 
the  purpose  for  which  the  subject  finds  a  place  in  the 
school  curriculum.  In  the  teaching  of  civics,  a  more 
or  less  new  element  in  our  public  school  education,  we 
find  that  the  mechanism  of  government  is  given  vastly 
greater  importance  than  duly  belongs  to  this  aspect 
of  trie  subject  and  that  although  government  and  social 
institutions  in  general  are  changing,  shifting  and  con- 
stantly readjusting  themselves  to  new  conditions  and 
needs,  the  mass  of  civic  teaching  renters  about  the 
mechanical  processes  of  government  without  a  standard 
of  either  efficiency  or  fitness.  Instead  of  teaching 
civic  ideals  and  their  relation  to  society  as  a  dynamic 
force,  we  are  accepting  the  teachings  of  the  so-called 
statics  of  the  State  and  its  activities. 

The  survey  furnishes  an  excellent  basis  for  the 
vitalizing  of  civic  teaching  in  our  public  schools  and 
may  furnish  standards  of  judgment  of  the  efficacy  of 
social  institutions  which  every  true  American  should 
know  or  at  least  should  be  capable  of  understanding. 
Careful  study  of  a  local  survey  should  furnish  not  only 
the  basis  for  a  syllabus  to  be  used  in  the  teaching  of 
civics  in  the  public  schools,  but  should  enlist  the  interest 
and  service  of  many  pupils  in  civic  activities,  a  service 
that  will  furnish  the  practical  experience  necessary  in 


202  THE  SOCIAL  SURVEY 

the  preparation  of  a  responsible  and  practical  citizen- 
ship. 

THE  Civic  PAGEANT. 

As  a  last  and  perhaps  a  crowning  expression  of  the 
findings  of  the  survey,  the  civic  pageant  may  be  called 
into  play.  This  method  of  civic  education  through 
pageantry  is  neither  new  nor  impractical.  In  the  last 
analysis  the  pageant  is  the  rehearsal  of  historic  and 
civic  facts  by  the  use  of  the  most  striking  essentials 
of  both  the  historic  and  the  civic  developed,  and  -ar- 
ranged with  sufficient  art  and  symbolising  the  tradi- 
tional ideals  of  the  community  to  make  their  appeal 
to  the  masses  through  every  means  at  the  command 
of  mass  co-operation  and  artistic  faithfulness  to  the 
dominant  ideals  of  the  period  and  conditions  represent- 
ed. The  survey  being  an  intensive  analysis  of  the 
social  and  civic  life  of  the  people  furnishes  vast  stores 
of  material  that  can  be  used  in  focusing  social  ideals 
upon  existing  conditions. 

It  is  true  that  the  mere  mass  co-operation  in  the 
production  of  a  pageant  has  great  social  and  civic 
value,  but  it  must  be  recognised  that  a  pageant  that 
can  be  made  to  express  social  needs  and  symbolise  the 
social  ideals  and  forces  available  for  their  realisation 
will  render  a  service  that  will  add  dramatic  force  and 
a  conscious  recognition  of  social  needs. 


ASOCIAL  PROGRAM. 

social  survey  is  a  process  of  qualitative  and 
J-  quantitative  analysis  of  our  social  environment 
both  in  the  past  and  in  the  present  in  order  to  make 
possible  the  visualising  and  the  actual  creation  of 
practical  Utopias.  Without  the  Utopian  vision  of 
the  surveying  forces  and  without  the  inspiration  that 
comes  from  a  vision  of  the  future  the  main  purpose 
of  the  survey  is  destroyed. 

While  fundamentally  the  survey  takes  its  inspiration 
from  the  possibilities  for  reconstruction  and  readjust- 
ment of  institutions,  agencies  and  human  relationships 
on  a  basis  that  is  true  to  the  facts  revealed,  the  most 
difficult  task  in  the  carrying  out  of  a  constructive 
social  program  is  to  be  found  in  the  elimination  or 
destruction  of  organizations,  institutions,  agencies, 
practices  and  methods  which  have  become  part  of  the 
present  only  through  the  influence  of  the  past.  The 
conservative  citizen  will  be  filled  with  regret  and  will 
become  fearful  of  the  astounding  task  of  destruction 
involved  in  the  re-organization  of  the  existing  agencies 
necessary  in  order  to  meet  our  needs  revealed  by  the 
new  vision  gained  through  the  survey. 

In  the  protracted  effort  to  achieve  results  the  radical 
elements  in  any  social  force  bound  upon  recon- 
struction and  re-organization  will  be  shocked  if  not 
wholly  destroyed  by  the  great  mass  of  inert  people 
whose  social  ideals  do  not  extend  beyond  their  daily 
bread  of  tomorrow  and  those  whose  personal  interests 
are  inseparable  from  a  social  order  in  which  the  measure 

203 


204  THE  SOCIAL  SURVEY 

of  their  economic  success  depends  upon  respect  for 
the  existing  order. 

In  setting  forth  a  constructive  program  of  social 
reform  we  must  not  fear,  therefore,  to  soar  high  and 
set  the  pace  that  the  most  Utopian  vision  and  the  high- 
est ideals  may  suggest  as  long  as  the  evidence  points 
in  that  direction.  No  great  social  reform  can  be  brought 
about  by  a  check  upon  the  imagination  and  high  regard 
for  the  past  except  as  it  contributes  its  share  towards 
the  foundation  of  the  future.  Our  school  histories  do 
not  teach  us  the  little  steps  in  the  history  of  a  country 
or  a  community  or  a  people.  They  bring  before  us  the 
great  vision  and  the  great  creative  forces  that  have 
marked  the  revolution  in  the  evolutionary  development 
of  the  state ;  they  dwell  upon  the  epoch  making  periods 
which  were  marked  by  destruction  of  the  past  and  the 
establishment  of  better  order.  Those  who  most  cherish 
our  present  institutions  are  foremost  in  praising  the 
heroes  of  the  past  who  have  had  the  courage  and  the 
vision  and  the  leadership  to  undertake  the  destruction 
of  the  established  institutions  and  the  building  of 
new  ones. 

If  the  survey  is  to  bring  about  results  and  if  the 
people  are  to  be  moved  and  inspired  into  a  broad  and 
lasting  improvement  of  existing  conditions  and  the 
destruction  of  evils,  they  must  be  given  a  great  vision 
of  the  future,  they  must  be  inspired  with  the  realisation 
of  the  great  power  that  is  within  them  to  create  a  new 
and  better  order,  they  must  be  aroused  with  dynamic, 
practical  ideals  that  will  see  the  past  and  the  present 
as  the  stepping  stones  towards  a  more  thoughtful 
progress.  The  potential  power  for  such  progress  among 
the  people  can  be  judged,  however,  only  by  the  quality 


THE  SOCIAL  PROGRAM  205 

of  social  ideals  they  promise;  and  the  survey  should 
serve  to  formulate  such  ideals. 

The  futility  of  endeavoring  to  outline  a  constructive 
plan  of  improvement  for  communities  without  the 
specific  diagnostic  information  which  the  survey  must 
gather  is  apparent.  The  widely  diversified  efforts  in 
the  direction  of  social  improvements  in  this  country 
and  the  experience  of  the  world  in  many  fields  of  social 
endeavor  are  at  the  disposal  of  those  endeavoring  to 
lay  out  a  program  of  social  action.  How  this  experi- 
ence of  other  communities  and  the  dictates  of  the  local 
conditions  should  be  used  in  shaping  such  a  program 
will  depend  entirely  upon  the  preparations  made  by 
the  surveying  forces  by  way  of  educating  public  opinion 
on  the  basis  of  existing  conditions  towards  a  compre- 
hensive and  constructive  program. 

The  first  difficulty  in  the  way  of  such  a  program  will 
undoubtedly  be  the  existing  social  agencies,  sometimes 
under  the  leadership  of  public  spirited  citizens  and 
professional,  if  not  wholly  socialised,  social  workers. 
The  scrapping  process  to  which  every  industry  subjects 
its  machinery  with  the  advance  in  methods  of  produc- 
tion is  difficult  of  application  in  the  social  field.  Machin- 
ery is  not  handicapped  by  tradition,  its  product  is 
too  quickly  subject  to  interpretation  in  terms  of  finan- 
cial return,  while  institutions  and  social  agencies  are 
the  expression  of  social  ideals;  their  efficacy  in  meeting 
the  changing  social  needs  is  not  and  frequently  cannot 
be  measured  adequately  in  terms  of  measurable  social 
values  to  the  community.  That  the  scrapping  of 
existing  but  inefficient  or  inadequate  agencies  is  the 
first  prerequisite  of  a  constructive  social  program  is 
evident  from  any  of  the  scores  of  surveys  already 


206  THE  SOCIAL  SURVEY 

carried  out  in  this  country  and  the  attempts  towards 
reform  that  have  been  made  in  consequence  of  the 
facts  ascertained. 

A  social  survey  should,  therefore,  embody  not  alone 
the  scope  of  the  service  to  be  rendered  but  a  translation 
in  concrete  terms  of  the  static  cost  of  existing  agencies 
and  the  dynamic  values  to  be  secured  by  the  suggested 
changes.  The  public  must  be  clear  as  to  the  difference 
between  the  immediate  investment  involved  by  a 
particular  undertaking  in  the  field  of  social  improve- 
ment and  the  ultimate  return  or  saving  to  the  com- 
munity upon  this  investment.  In  other  words,  the 
difference  between  primary  investment  and  actual  cost 
must  be  made  clear  through  the  use  of  social  account- 
ancy that  would  show  assets  and  liabilities  of  the  old 
system  as  against  the  proposed  changes. 

Communities  have  certain  individualities  which 
must  be  recognised  in  all  social  progress.  In  the  field 
of  medicine  we  have  come  to  recognise  the  psychic 
factors  as  of  momentous  importance  in  the  treatment 
of  disease.  In  the  social  field  there  is  a  well  differen- 
tiated social  psychology  which  can  and  should  be 
ascertained  and  recognised  in  the  forming  of  a  social 
program.  The  rate  of  progress  of  a  community, 
whether  that  be  determined  by  revolutionary  changes 
in  social  life,  the  change  in  the  character  of  the  popula- 
tion and  its  rate  of  increase,  its  social  environment  as 
found  in  the  neighboring  communities,  are  all  factors 
to  be  considered  in  the  building  of  a  constructive  plan. 
Under  no  circumstances  should  a  social  program  be 
proposed  that  is  based  upon  borrowed  ideals  and  experi- 
ence unless  they  are  in  harmony  with  the  spirit  of  the 
people  and  are  felt  and  understood  by  them.  Imitative 


THE  SOCIAL  PROGRAM  207 

social  reform  that  fails  to  take  as  its  foundation  the 
local  facts  not  only  as  to  condition  but  as  to  capacity 
of  the  people  to  foster  and  realise  such  ideals  is  detri- 
mental to  social  reform  not  only  in  a  given  community 
but  throughout  the  country  as  a  whole. 

The  wide  scope  that  a  complete  social  program  must 
embrace  is  frequently  beyond  the  social  and  economic 
resources  of  the  community  surveyed  and  may  prove 
so  overwhelming  as  to  handicap  all  progress.  It  is 
important  under  these  conditions  to  choose  only  some 
of  the  most  pressing  and  most  flagrant  problems  and 
attempt  to  formulate  a  program  on  the  basis  of  the 
facts  ascertained  in  relation  to  these  problems.  Such 
a  choice  makes  possible  a  greater  concentration  of 
effort  and  facilitates  the  educational  work  that  is  re- 
quired in  preparation  for  the  campaign  of  reform.  In 
the  choice  of  such  problems  consideration  should  be 
given  to  the  type  of  people  that  makes  up  the  bulk 
of  the  population  upon  whom  the  carrying  out  of  the 
plans  would  depend  and  the  extent  to  which  the  facts 
relating  to  this  problem  would  lend  themselves  to 
popular  interpretation  and  discussion.  This  should 
not  be  taken  to  mean  that  a  piecemeal  program  is  the 
most  desirable.  It  must  be  recognised,  however,  that 
communities  like  individuals  must  be  pressed  into  a 
" reform  frame  of  mind"  by  degrees  and  that  the  first 
steps  should  be  taken  cautiously.  The  full  program 
should  be  constantly  kept  in  mind  as  a  background 
upon  which  each  separate  change  and  improvement 
should  be  built  in  a  broad  and  coherent  way. 

In  placing  the  program  before  the  public  it  is  not 
only  unnecessary  but  quite  inadvisable  to  include  the 
technical  details  of  change  beyond  the  broad  outlines 


208  THE  SOCIAL  SURVEY 

upon  which  the  people  can  be  depended  to  pass  intel- 
ligent judgment  and  for  which  they  can  make  them- 
selves responsible  both  socially  and  financially.  The 
intricacies  of  the  technic  involved  in  the  actual  carrying 
out  of  the  program  should  be  ascertained  and  their 
cost  measured  in  terms  of  results  to  be  accomplished, 
but  the  public  mind  should,  as  far  as  possible,  be  spared 
the  task  of  determining  their  meaning  and  value. 

That  a  program  comprehensive,  true  to  the  facts 
and  suitable  for  local  needs,  will  involve  a  redistribu- 
tion of  responsibilities  and  radical  changes  in  the 
machinery  for  the  social  control  of  human  activities 
must  be  admitted.  It  is,  therefore,  of  the  utmost 
importance  to  recognise  the  necessity  for  taking  the 
people  into  the  confidence  of  the  surveying  and  reform- 
ing forces  so  that  such  social  control  as  may  be  needed 
for  the  reshaping  of  local  conditions  and  the  removal  of 
social  problems  may  come  from  the  people  and  con- 
stitute an  enlightened  self  control  bent  upon  an  en- 
lightened self  interest. 

The  superimposing  of  investigation  and  the  grafting 
of  reforms  that  fail  to  recognise  the  masses  of  the  people 
as  the  controlling  factor  in  the  accomplishment  of 
results  fails  to  recognise  the  true  purport  of  the  survey 
as  a  means  of  creating  and  inspiring  civic  and  social 
ideals  and  will  produce  neither  permanent  nor  far- 
reaching  results  in  a  democracy. 


APPENDIX 

SOURCES  OF  INFORMATION. 

A  large  share  of  the  labor  connected  with  the  gather- 
ing and  organizing  of  the  material  of  a  social  survey 
depends  upon  the  ability  of  the  workers  to  find  the 
most  reliable,  the  most  comprehensive  and  the  most 
accessible  sources  of  information. 

The  main  types  of  information  aside  from  the  direct 
individual  investigation  of  specific  conditions,  may 
be  divided  into  groups  as  follows:  Statistical  Data, 
Legal  Provisions,  Application  of  the  Law  by  enforcing 
bodies,  Finances  and  Methods  of  Administration  and 
comparative  data  relating  to  other  communities. 

A.  Statistical  Data.  Statistical  data  may  be  secured 
from  official  and  unofficial  sources.  The  main  official 
sources  are  as  follows: 

a.  State   and   Federal    census,    taken   every   ten 
years  and  alternating  each  other  by  five  years.    Many 
States  take  a  census. 

b.  For  records  concerning  births,  marriages,  deaths 
etc.,  the  reports  of  the  Health  Department  should 
furnish  information.     The  Bureau  of  the  Census  also 
publishes  the  figures  concerning  the  deaths  and  causes 
of  deaths  in  the  United  States,  at  least  for  the  States 
in  which  the  registration  of  deaths  is  required.    These 
are  valuable  for  the  purposes  of  comparing  local  con- 
ditions with  conditions  elsewhere. 

c.  The  court  records,  the  records  and  reports  of 
prisons,  the  reports  of  the  State  Board  of  Charities, 
and  the  reports  of  special  commissions  for  dealing  with 

14  209 


210  THE  SOCIAL  SURVEY 

crime,  are  the  best  sources  for  statistics  on  crime.  The 
Federal  Census  publishes  the  statistics  on  crime  every 
ten  years  and  they  are  particularly  valuable  for  pur- 
poses of  comparison. 

d.  For  industrial  statistics  use  the  Federal  Census, 
the  report  of  the  Factory  Inspector,  the  Commissioner 
of  Labor,  the  State  Census  and  the  reports  of  various 
bodies  dealing  officially  with  industrial  conditions  such 
as  employment  bureaus,  boards  of  trade,  etc. 

e.  Statistics  on  education  may  be  found  in  the 
Federal  Census,  School  Censuses,  reports  on  School 
Attendence,  Illiteracy,  etc.,  and  also  in  the  local  school 
reports,  the  reports  of  the  United  States  Commissioner 
of  Education,  the  State  Commissioner  of-  Education 
and  the  publications  of  special  commissions  on  educa- 
tion or  subjects  having  a  relationship  to  education. 

Aside  from  the  official  reports  considerable  valuable 
information  can  often  be  obtained  by  letter.  Officials 
are  generally  very  glad  to  give  information  concerning 
their  department  and  are  eager  to  respond  to  public 
interest  in  their  work.  If  the  letters  are  clear  and  the 
questions  to  the  point,  few  officials  would  refuse  to 
answer  them  promptly  and  accurately. 

The  Federal  and  State  reports  may  be  obtained 
either  directly  through  the  departments  or  through  the 
local  representative  who  can  see  personally  that  the 
documents  are  sent  to  the  proper  destination. 

Before  other  steps  are  taken  in  most  matters  relating 
to  the  securing  of  statistics  it  is  well  to  consult  the 
State  and  Federal  Censuses. 

A.  Unofficial  statistics  on  social  problems  may  be 
derived  from  the  following  sources: 


SOURCES  OF  INFORMATION  211 

a.  Reports  and  records  of  philanthropic  agencies. 

b.  Pay-rolls    and    reports    of    various    industrial 
establishments. 

c.  Reports  of  private  commissions  and  other  pri- 
vate investigating  agencies. 

d.  Reports  of  banks  and  insurance  companies. 

e.  Reports  of  business  agencies. 

B.  Legal  information  based  upon  Federal,  State  and 
local  legislation  may  be  obtained  by  consulting  the 
following : 

a.  The  Statutes  of  the  Federal  Government. 

b.  General  Laws  of  the  State. 

c.  Special  State  Laws  relating  to  the  locality  or 
to  all  localities  of  the  same  class. 

d.  City  Charter. 

e.  City  Council  Ordinances,  Board  of  Aldermen 
and  Health  Board  and  Police  Department  Rules  and 
Regulations. 

f .  Regulations  formulated  by  various  departments 
in  accordance  with  powers  vested  in  these  departments 
by  law. 

In  case  persons  with  legal  training  are  not  available 
for  this  work,  it  is  advisable  to  communicate  with  the 
Secretary  of  State,  City  Solicitor,  City  or  Town  Clerk, 
Heads  of  Departments,  etc.  for  the  purpose  of  obtain- 
ing the  exact  wording  of  the  laws,  and  if  the  laws  have 
been  secured  by  the  committee,  it  is  advisable  to  sub- 
mit them  to  the  above  officials  for 'purposes  of  veri- 
fication. In  many  States  the  State  Library  has  a 
Legislative  Reference  Bureau  which  can  furnish  ac- 
curate information  on  legislative  and  administrative 
matters  concerning  the  State  or  the  municipalities  of 
the  State. 


212  THE  SOCIAL  SURVEY 

C.  The  methods  of  organization  and  administration 
of  various  public  departments,  although  provided  for  by 
law,  are  often  complicated  and  the  law  so  interpreted 
as  to  make  an  understanding  of  the  functions  and 
methods  of  the  departments  difficult.    It  is  well,  there- 
fore, to  consult  heads  of  departments,  commissioners, 
executive    secretaries    of    various    boards    and    other 
officials  as  to  the  actual  workings  of  the  departments. 
The  annual  reports  of  such  departments  should  always 
be  secured  and  examined  for  the  purpose  of  formulating 
definite  questions  to  be  asked  before  consulting  the 
officials. 

D.  Cost  of  maintenance  and  the  use  of  funds  is  so 
important  a  factor  in  a  survey  that  the  examination 
of  receipts  and  expenditures  should  be  made  whenever 
possible  by  a  person  familiar  with  the  handling  of 
accounts. 

For  the  expenditures  of  the  State,  county  and  city, 
the  budgets  which  are  almost  always  published  should 
be  studied  with  a  view  to  discovering  whether  the 
records  are  kept  up  to  date,  in  a  scientific  and  accurate 
manner;  whether  funds  provided  for  one  type  of  work 
are  used  for  other  and  unauthorized  purposes;  whether 
proper  evidence  of  legitimacy  of  the  various  expendi- 
tures is  required;  etc.  In  all  this  work  the  reports  of 
the  department  and  examination  of  the  accounts  kept 
in  the  office  should  form  an  integral  part  of  a  cost 
survey. 

In  the  case  of  private  agencies  most  of  the  informa- 
tion desired  in  connection  with  the  best  organized 
work  will  be  found  in  the  annual  reports.  The  methods 
applied  to  the  public  offices  should  be  applied  to  the 
private  agencies  whenever  possible. 


SOURCES  OF  INFORMATION  213 

E.  General  information  not  to  be  found  in  reports 
or  from  consultation  with  officers  and  workers  will 
in  all  probability  have  to  be  derived  from  investigations 
of  actual  conditions.    Before  undertaking  such  inves- 
tigations, it  is  most  desirable  that  all  the  public  officials, 
social  workers  and  officers  connected  with  the  various 
agencies   in  the   community,   and  the   persons   who, 
through  their  occupation  or  interest  have  had  occasion 
to  come  into  contact  with  the  conditions  to  be  examin- 
ed, should  be  consulted.    Such  consultation  will  reduce 
the  work  by  securing  the  interest  of  a  large  circle  of 
well-informed  persons  who  may  also  point  out  ways 
of  getting  at  the  facts  without  difficulty  or  delay. 

F.  Only    through    comparison    with    conditions    in 
other  communities  can  a  clear  idea  of  local  conditions 
be  formed.    It  is  important,  therefore,  to  study  reports 
of  surveys  relating  to  other  communities  in  order  to 
ascertain  to  what  extent  the  surveyed  community  falls 
below    the    standard    of   other   similar    communities. 
This  can  be  done  by  a  study  of  the  two  or  more  hundred 
surveys  that  are  now  available  in  printed  form,  the 
titles  of  which  are  printed  in  the  bibliography  of  this 
book. 


SOCIAL  AGENCIES  OF  NATIONAL  SCOPE. 

( This  is  a  partial  list  of  agencies  in  a  position  to  advise  and 

assist  in  the  carrying  out  of  a  Social  Survey. ) 

American  Association  for  Labor  Legislation,  131  East  23d  St, 
New  York  City. 

American  Association  for  Study  and  Prevention  of  Infant  Mor- 
tality, 1211  Cathedral  St.,  Baltimore,  Md. 

American  Public  Health  Association,  755  Boylston  St.,  Boston, 
Mass. 

American  Social  Hygiene  Association,  Inc.,  105  West  40th  St., 
New  York  City. 

American  Unitarian  Association:  Department  of  Social  and 
Public  Service,  25  Beacon  St.,  Boston,  Mass. 

Boys'  Club  Federation,  1  Madison  Ave.,  New  York  City. 

Committee  for  Immigrants  in  America  and  National  American- 
ization Committee,  20  West  34th  St.,  New  York  City. 

Committee  of  One  Hundred  on  National  Health,  203  East  27th 
St.,  New  York  City. 

Committee  on  Provision  for  the  Feeble-Minded,  Empire  Build- 
ing, Philadelphia,  Pa. 

The  Federal  Council  of  the  Churches  of  Christ  in  America: 
Commission  on  the  Church  and  Social  Service,  105  East 
22d  St.,  New  York  City. 

The  Joint  Commission  on  Social  Service  of  the  Protestant 
Episcopal  Church,  Church  Missions  House,  281  4th  Ave., 
New  York  City. 

National  Association  for  the  Study  and  Prevention  of  Tuber- 
culosis, 105  East  22d  St.,  New  York  City. 

National  Child  Labor  Committee,  105  East  22d  St.,  New  York 
City. 

National  Committee  for  Mental  Hygiene,  50  Union  Square, 
New  York  City. 

National  Committee  on  Prisons,  Columbia  University,  New 
York  City. 

National  Committee  on  the  Protection  of  Feeblemindedness, 
Empire  Building,  Philadelphia,  Pa. 

215 


216  THE  SOCIAL  SURVEY 

National  Consumers'  League,  289  4th  Ave.,  New  York  City. 
National  Federation  of  Remedial  Loan  Associations,  130  East 

22d  St.,  New  York  City. 
National   Federation  of  Settlements,   20  Union  Park,   Boston, 

Mass. 
National  League  of  Women  Workers,  35  East  30th  St.,  New 

York  City. 
Playground  and  Recreation  Association  of  America,  1  Madison 

Ave.,  New  York  City. 
Charity  Organization   Department:    Russell   Sage   Foundation, 

130  East  22d  St.,  New  York  City. 
Department  of  Child  Helping:    Russell  Sage  Foundation,   130 

East  22d  St.,  New  York  City. 
Society  of  Sanitary  and  Moral  Prophylaxis,  105  West  40th  St., 

New  York  City. 


BIBLIOGRAPHY. 

The  bibliography  presented  in  this  book  lays  no  claim  to 
completeness,  nor  has  the  selection  of  books  been  made  with  a 
view  to  presenting  a  complete  bibliographical  list  on  any  given 
subject. 

BIBLIOGRAPHIES. 
HANMEB  AND  KNIGHT.     Sources  of  Information  on  Recreation. 

Russell  Sage  Foundation,  Rec.  136. 
REYNOLDS,  J.  B.     Civic  Bibliography  for  Greater  New  York. 

Russell  Sage  Foundation. 
SELECT   LIST   OF   WORKS   RELATING   TO   CITY   PLANNING   AND 

ALLIED  TOPICS.     New  York  Public  Library,  1913. 

GENERAL  READING. 

ALLEN,  WILLIAM  H.     Efficient  Democracy.     Dodd,  Mead  &  Co., 

New  York,  1908. 
BEARD,    MARY    RITTER.      Woman's    Work    in    Municipalities. 

Appleton,  New  York. 

BRECKINRIDGE,  SOPHONISBA  P.,  and  ABBOTT,  EDITH.     The  De- 
linquent Child  and  the  Home.     Russell  Sage  Foundation, 

New  York. 

DEVINE,  EDWARD  T.    The  Family  and  Social  Work. 
Misery  and  Its  Causes.    MacMillan,  New  York,  1913. 
Social  Forces.     Survey  Associates,  New  York. 
The  Spirit  of  Social  Work.    Survey  Associates,  New  York. 
ELY,  R.  T.     Property  and  Contract  in  Their  Relations  to  the 

Distribution  of  Wealth.     New  York,  1914. 
FORD,  JAMES,  PH.D.    Co-operation  in  New  England:  Urban  and 

Rural.     Russell  Sage  Foundation,  New  York. 
GRAY,  B.  KIRKMAN.     Philanthropy  and  the  State.     P.  S.  King 

&  Son,  London,  1908. 
HENDERSON,  C.  R.,  and  Others     Modern  Methods  of  Charity. 

New  York,  1904. 
HOLLANDER,  J.  H.    The  Abolition  of  Poverty.     Boston,  1914. 

217 


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HOWE,  FREDERIC  C.     The  City  the  Hope  of  Democracy.     Scrib- 

ner's,  New  York,  1909. 

HUNTER,  ROBERT.     Poverty.    New  York,  1905. 
KING,  CLYDE  LYNDON.     Lower  Living  Costs  in  Cities.     Apple- 
ton,  New  York,  1905. 
KING,  W.  I.  Wealth  and  the  Income  of  the  People  of  the  United 

States.    New  York,  1915. 

LAFARGE,  PAUL.    The  Evolution  of  Property.    London,  1894. 
LEE,  JOSEPH.    Constructive  and  Preventive  Philanthropy.   New 

York,  1902. 
MACDONALD,  ARTHUR.     Man  and  Abnormal  Man,  Including  a 

Study  of  Children.     Washington. 
McDouGALL,  WILLIAM.    An  Introduction  to  Social  Psychology. 

Luce  &  Co.,  1909. 
MANGOLD,  GEORGE  B.    Problems  of  Child  Welfare.    MacMillan, 

New  York,  1914. 

MONEY,  L.  G.  C.    Insurance  versus  Poverty.    London,  1911. 
NEARING,  SCOTT.     Income.     MacMillan,  New  York,  1915. 
PATTEN,  SIMON  N.    The  New  Basis  of  Civilization.    New  York, 

1907. 
RICHMOND,  M.  E.,  and  HALL,  F.  S.    A  Study  of  Nine  Hundred 

and  Eighty-five  Widows  Known  to  Certain  Charity  Organ- 
ization Societies.    New  York,  1910. 
ROWNTREE,  B.  S.     Poverty:   A  Study  of  Town  Life.     London, 

1902. 
SEMPLE,   E.   C.     Influence  of  Geographic  Environment.     New 

York,  1911. 
SQUIER,  L.  W.     Old  Age  Dependency  in  the  United  States:  A 

Complete  Survey  of  the  Pension  Movement.     New  York, 

1912. 

THOMPSON,  J.  J.     Social  Insurance.     Chicago,  1914. 
WARD,  LESTER  F.     Applied   Sociology.     Ginn  &  Co.,  Boston, 

1906. 
WARNER,  AMOS  G.    American  Charities.    Thomas  Y.  Crowell  & 

Co.,  New  York,  1894. 

STATISTICS. 
BAILEY,  W.  B.    Modern  Social  Conditions.    New  York,  1906. 


BIBLIOGRAPHY 


219 


BOWLEY,  A.  L.    An  Elementary  Manual  of  Statistics.    London, 

1910. 
BRINTON,  WILLAED  C.     Graphic  Methods  for  Presenting  Facts. 

New  York,  1914. 
ELDERTON,  W.  P.  and  E.  M.     Primer  of  Statistics.     London, 

1912. 
GIDDINGS,  FRANKLIN  H.    A  Social  Marking  System.    Quarterly 

Publication  of  the  American  Statistical  Association,  June, 

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MAYO-SMITH,  RICHMOND.    Statistics  and  Sociology.    New  York, 

1896. 
NEWSHOLM,  ARTHUR.     Elements  of  Vital  Statistics.     London, 

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U.  S.  CENSUS  BUREAU.    Mortality  Statistics,  1913. 
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WEBB,  A.  D.    New  Dictionary  of  Statistics.    London,  1911. 
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220  THE  SOCIAL  SURVEY 

JAMES,    E.    R.     Remedial    and   Preventive   Legislation   in   the 

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CARROLL,  C.  E.  Community  Survey  in  Relation  to  Church  Effi- 
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FISHER,  F.  B.,  and  Others.  The  W7ay  to  Win.  Laymen's  Mis- 
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HONOLULU,  H.  I.  Honolulu  Social  Survey.  Board  of  Trustees 
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tion, New  York,  1909-14. 


224  THE  SOCIAL  SURVEY 

1.  Women  and  the  Trades.    E.  B.  Butler. 

2.  Work- Accidents  and  the  Law.     Crystal  Eastman. 

3.  The  Steel  Workers.    John  Fitch. 

4.  Homestead:   The  Households  of  a  Mill  Town.     M.  F. 

Byington. 

5.  Pittsburgh  District:    Civic  Frontage.     E.  T.  Devine, 

R.  A.  Woods,  A.  T.  Burns,  F.  E.  Wing,  S.  M.  Har- 
rison, F.  Lattimore,  L.  V.  North  and  others. 

6.  Wage-Earning  Pittsburgh.    P.  U.  Kellogg,  J.  R.  Com- 

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PORT  ARTHUR,  CAN.  Report  of  a  Preliminary  and  General 
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Social  Service  and  Evangelism,  Presbyterian  Church,  To- 
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PROVIDENCE,  R.  I.  Modern  City.  William  Kirk.  University 
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READING,  PA.  Report  on  a  Survey  of  the  Municipal  Depart- 
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Service  and  Evangelism,  Presbyterian  Church,  Toronto, 
1913. 

ST.  CATHERINES,  CAN.  Report  of  a  Preliminary  and  General 
Social  Survey  of  St.  Catherines.  Ibid.,  1915. 

SAN  DIEGO,  CAL.  Pathfinder  Social  Survey  of  San  Diego.  E. 
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SPRINGFIELD,  ILL.  The  Springfield  Survey.  S.  M.  Harrison, 
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SPRINGFIELD,  Mo.  Springfield  Social  Survey.  W.  T.  Cross,  Dir* 
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SYDNEY,  CAN.  Preliminary  and  General  Social  Survey  of  Syd- 
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TOPEKA,  KAN.  Topeka  Improvement  Survey.  S.  M.  Harrison, 
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VANCOUVER,  CAN.  Preliminary  and  General  Social  Survey  of 
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MILWAUKEE,  Wis.  Preliminary  Survey  of  Certain  Depart- 
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15 


226  THE  SOCIAL  SURVEY 

TOPEKA,  KAN.  Municipal  Administration  in  Topeka.  Depart- 
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RURAL  SURVEYS. 

ARKANSAS.  Rural  Survey  in  Arkansas.  W.  H.  Wilson,  Dir. 
J.  O.  Ashenhurst,  Inv.  Department  of  Church  and  Country 
Life,  Presbyterian  Church,  156  Fifth  Ave.,  New  York, 
1913. 

GEORGIA,  CLARK  COUNTY.  Rural  Survey  of  Clark  County  with 
Special  Reference  to  Negroes.  University  of  Georgia, 
Athens,  March,  1915. 

Fulton  and  Bibb  Counties.  Economic  and  Social  Surveys  of 
Fulton  and  .Bibb  Counties.  E.  C.  Branson.  State  Normal 
School,  Athens,  1912. 

Putnam  County.  Brief  Economic  and  Social  Survey  of  Put- 
nam County.  E.  C.  Branson.  State  Normal  School,  Ath- 
ens, 1912. 

GRACEHAM,  MD.  Survey  of  Graceham.  H.  E.  Stocker  and  E. 
DeS.  Brunner.  Moravian  Country  Church  Commission, 
Easton,  Pa. 

ILLINOIS.  Rural  Survey  in  Illinois.  W.  H.  Wilson,  Dir.  C.  S. 
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MANITOBA.  Rural  Survey,  Swan  River  Valley.  W.  A.  Riddell 
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MARYLAND.  Rural  Survey  in  Maryland.  W.  H.  Wilson,  Dir. 
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and  Country  Life,  Presbyterian  Church,  156  Fifth  Ave., 
New  York,  1912. 

MINNESOTA.  Social  and  Economic  Survey  of  a  Rural  Town- 
ship in  Southern  Minnesota.  C.  W.  Thompson  and  G.  P. 
Warber.  University  of  Minnesota,  Minneapolis,  1913.  So- 
cial and  Economic  Survey  of  a  Community  in  the  Red 
River  Valley.  L.  D.  H.  Weld.  University  of  Minnesota, 
Minneapolis,  1915.  Social  and  Economic  Survey  of  a 
Omimunity  in  Northeastern  Minnesota.  G.  P.  Warber. 
Ibid.,  1915. 


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MISSOURI.  Rural  Survey  in  Missouri.  W.  H.  Wilson,  Dir.  E. 
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OHIO.  Rural  Life  Survey.  W.  H.  WTilson,  Dir.  Department  of 
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ONTARIO.  Rural  Survey  of  Huron.  W.  A.  Riddell  and  others. 
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WISCONSIN.  Social  Agents  in  a  Rural  Community.  C.  J.  Gal- 
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BAILEY,  L.  H.  Survey  Idea  in  Country  Life  Work.  The  Au- 
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BRANSON,  E.  C.  The  Georgia  Club  at  the  State  Normal  School, 
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GALPIN,  C.  J.  Method  of  Making  a  Survey  of  ^t  Rural  Com- 
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GILLIN,  J.  L.  Application  of  the  Social  Survey  to  Small  Com- 
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228  THE  SOCIAL  SURVEY 

WELLS,  G.  F.  Social  Survey  for  Rural  Communities.  The  Au- 
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Survey  of  the  Public  Health  Situation.    Franz  Schneider,  Jr. 
Chamber  of  Commerce,  Atlanta,  1913. 

AUSTIN,  TEXAS.  Social  Survey  of  Austin.  B.  Hamilton.  Uni- 
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BALTIMORE,  MD.  Public  Health  Administration  in  Baltimore 
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CHICAGO,  ILL.  Public  Health  Administration  in  Chicago.  J.  C. 
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DAYTON,  OHIO.  Organization  and  Administration  of  the  De- 
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EL  PASO,  TEXAS.  Preliminary  Report  of  the  Health  Survey  of 
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J.  H.  Grosman.  Chamber  of  Commerce,  El  Paso,  1915. 

ERIE,  PA.  General  Sanitary  Survey  of  Erie.  Mrs.  J.  C.  Crane. 
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HOBOKEN,  N.  J.  Sanitary  Survey  of  Hoboken.  Bureau  of  Mu- 
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ILLINOIS.  Public  Health  Administration  in  Illinois.  S.  B. 
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ITHACA,  N.  Y.  Survey  of  the  Public  Health  Situation.  Franz 
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KANSAS,  SUMNER  COUNTY.  Sumner  County  Sanitary  and  So- 
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KENTUCKY.  Sanitary  Conditions  and  Needs  of  Kentucky.  Mrs. 
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MARYLAND.  Public  Health  Administration  in  Maryland.  Car- 
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MILWAUKEE,  Wis.  Health  Department,  Milwaukee.  S.  M. 
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MINNESOTA.  Report  on  a  Campaign  to  Awaken  Public  Interest 
in  Sanitary  and  Sociological  Problems  in  the  State  of 
Minnesota.  Mrs.  J.  C.  Crane.  State  Board  of  Health,  St. 
Paul,  1911. 

Public   Health   Administration    in   Minnesota.      Carrol    Fox. 
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NASHVILLE,  TENN.  General  Sanitary  Survey  of  Nashville.  Mrs 
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NEW  HAVEN,  CONN.  Health  of  New  Haven.  Irving  Fisher. 
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NEW  YORK,  DUTCHESS  COUNTY.  Sickness  in  Dutchess  County. 
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NEW  YORK.  Report  of  Special  Health  Commission.  The  State, 
Albany,  1913. 

PAWTUCKET,  R.  I.  Report  on  the  Public  Health  Activities  of 
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READING,  PA.  Report  on  Department  of  Health.  New  York 
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ROCHESTER,  N.  Y.  Sanitary  Survey  of  Rochester.  Mrs.  C.  J. 
Crane.  The  Author,  Kalamazoo,  Mich.,  1911. 

SAGINAW,  MICH.  Sanitary  Survey  of  Saginaw.  Mrs.  C.  J. 
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SPRINGFIELD,  ILL.  Public  Health  in  Springfield.  Franz  Schnei- 
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ST.  JOSEPH,  Mo.  Report  of  a  Sanitary  Survey  of  St.  Joseph. 
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ST.  PAUL,  MINN.  Efficiency  and  Next  Needs  of  St.  Paul's 
Health  Department.  Bureau  of  Municipal  Research,  New 
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230  THE  SOCIAL  SURVEY 

SYRACUSE,  N.  Y.  Report  on  Syracuse  Board  of  Health.  A.  E. 
Shipley.  Bureau  of  Municipal  Research,  New  York,  1912. 

TOLEDO,  OHIO.  Public  Health  Administration  in  Toledo.  Carrol 
Fox.  U.  S.  Public  Health  Service,  Washington,  June  25, 
1915. 

TOPEKA,  KAN.  Public  Health  Survey  of  Topeka.  Franz  Schnei- 
der, Jr.  Department  of  Surveys  and  Exhibits,  Russell  Sage 
Foundation,  New  York,  1914. 

UNIONTOWN,  PA.  Sanitary  Survey  of  Uniontown.  Mrs.  J.  C. 
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-\ 


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SOUTH  BEND,  IND.  Public  Schools  of  South  Bend.  J.  F.  Bob- 
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SPRINGFIELD,  ILL.     Public  Schools  of  Springfield.    L.  P.  Ayres. 
Division  of  Education,,  Russell  Sage  Foundation,  New  York, 
1914. 
SYRACUSE,  N.  Y.    Report  of  the  Syracuse  Public  Schools.    H.  L. 

Britain.    Bureau  of  Municipal  Research,  New  York,  1912. 
TEXAS.     Study  of  Rural  Schools  in  Texas.     E.  V.  White,  E.  E 
Davis.     University  of  Texas,  Austin,  1914. 


240  THE  SOCIAL  SURVEY 

EDUCATION    IN    VERMONT.      Carnegie    Foundation,    New   York, 

1914. 
VERMONT.     Secondary  Education  in  Vermont.     Raymond  Mc- 

Farland.    Middlebury  College,  Middlebury,  1912.    Bulletin, 

Vol.  VI,  No.  5. 
VERMONT,    WINDSOR    COUNTY.      Some    Conditions    and    Needs 

Among  tne  Rural  Schools  of  Windsor  County.     F.  T.  Kid- 

der.     Windsor  County  Y.  M.  C.  A.,  White  River  Junction, 

1913. 
VIRGINIA.     Report  of   the   Virginia   Educational   Commission. 

The  State,  Richmond,  1912. 
WISCONSIN.     Preliminary  Report  on  Conditions  and  Needs  of 

Rural  Schools  in  Wisconsin.    W.  H.  Allen.    State  Board  of 

Public  Affairs,  Madison,  1912. 

SCHOOLS — GENERAL  LITERATURE. 

AYRES,  LEONARD  P.  Educational  Surveying.  Cleveland  Engi- 
neering Society  Journal,  July,  1915. 

Laggards  in  Our  Schools :  A  Study  of  Retardation  and  Elim- 
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School  Surveys.    School  and  Society,  April  24,  1915. 

BLOOMFIELD,  MEYER.  Vocational  Guidance  of  Youth.  Hough- 
ton,  Mifflin,  Boston,  1911. 

BUCHNER,  E.  F.  School  Surveys.  U.  S.  Bureau  of  Education. 
Report  of  Commissioner,  1914. 

FOGHT,  H.  W.  The  American  Rural  School,  Its  Characteris- 
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GREEN,  M.  LOUISE.  Among  School  Gardens.  Russell  Sage 
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PERRY,  CLARENCE  A.  American  Vacation  Schools  of  1912. 
Russell  Sage  Foundation,  Rec.  138.  Vacation  Schools. 
Russell  Sage  Foundation,  Rec.  56. 

IMMIGRATION  AND  RACE. 

EDUCATION  OF  ADULT  IMMIGRANTS.  National  Educational  As- 
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ABBOTT,  G.  Adjustment — Not  Restriction.  Survey,  January  7, 
1911. 


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I 

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242  THE  SOCIAL  SURVEY 

MOSKOWITZ,  M.  Place  of  the  Immigrant  Child  in  the  Social 
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RIPLEY,  W.  Z.  The  Races  of  Europe:  A  Sociological  Study. 
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ROBERTS,  PETER.     The  New  Immigration:   A  Study  of  the  In- 
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America.    New  York,  1912. 
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SHIELDS,  A.  Illiteracy  and  Industrial  Efficiency  in  Large 
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SPERANZA,  G.  C.  Alien  in-  Relation  to  Our  Laws.  Annals 
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STONE,  A.  H.  Studies  in  American  Race  Problem.  New  York, 
1908. 

TAYLOR,  G.  Distribution  and  Assimilation  of  Immigrants. 
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U.  S.  IMMIGRATION  COMMISSION.  Abstract  of  Reports.  Wash- 
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WARD,  R.  D.  C.  Our  .Immigration  Laws  from  the  View  Point 
of  National  Eugenics.  Scientific  American,  73 :  287. 

WEATHERFORD,  W.  D.  Present  Forces  in  Negro  Progress.  New 
York,  1912. 

WHELPLEY,  J.  D.  The  Problem  of  the  Immigrant.  London, 
1905. 

WOODRUFF,  C.  E.    Expansion  of  Races.    New  York,  1909. 

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BATON  ROUGE,  LA.  Social  Evil  in  Baton  Rouge.  Purity  League, 
Baton  Rouge,  1914. 

BAY  CITY,  MICH.  Social  Evil  in  Bay  City.  Ministerial  Asso- 
ciation, Bay  City,  1914. 

CHARLESTON,  S.  C.  Special  Report  of  the  Law  and  Order 
League.  The  League,  Charleston,  1913. 

CHICAGO,  ILL.  Social  Evil  in  Chicago.  American  Social  Hy- 
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CLEVELAND,  OHIO.  Report  of  the  Vice  Commission  of  the  Cleve- 
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BIBLIOGRAPHY  243 

DENVER,  COL.  Report  of  Morals  Commission.  The  Commis- 
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ELMIRA,  N.  Y.  Report  on  Vice  Conditions  in  Elmira.  G.  J. 
Kneeland.  Women's  League  for  Good  Government,  507 
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GRAND  RAPIDS,  MICH.  Report  on  the  Social  Evil.  Public  Wel- 
fare Commission,  Grand  Rapids,  1913.  Report  of  the  In- 
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HARTFORD,  CONN.  Report  of  Vice  Commission.  The  Commis- 
sion, Hartford,  1913. 

HONOLULU,  H.  I.  Report  of  the  Committee  on  the  Social  Evil. 
Social  Survey  Committee,  Honolulu,  1914. 

KANSAS  CITY,  Mo.  Social  Evil  in  Kansas  City.  F.  R.  Johnson. 
Board  of  Public  Welfare,  Kansas  City,  1910-11. 

LAFAYETTE,  IND.  Repoi «  on  Vice  Conditions.  Church  Council. 
Lafayette,  1913. 

LANCASTER,  PA.  Report  on  Vice  Conditions  in  the  City  of  Lan- 
caster. Rev.  C.  G.  Twombly,  St.  James'  Rectory,  1913. 

LEXINGTON,  KY.  Report  of  Vice  Commission.  The  Commis- 
sion, Lexington,  1915. 

LITILE  ROCK,  ARK.  Report  of  Vice  Commission.  The  Commis- 
sion, Little  Rock,  1913. 

MASSACHUSETTS.  Report  of  the  Commission  for  the  Investiga- 
tion of  the  White  Slave  Traffic,  So  Called.  The  Commis- 
sion, Boston,  1914. 

MINNEAPOLIS,  MINN.  Report  of  the  Vice  Commission.  Byron 
&  Willard,  Minneapolis,  1911. 

NELSON,  B.  C.  Situation  in  Nelson.  Ministerial  Association, 
Nelson,  1912. 

NEWARK,  N.  J.  Report  on  Social  Evil  Conditions.  Citizens' 
Committee  on  Social  Evil,  Newark,  1914. 

NEW  YORK  CITY.     The  Social  Evil  with  Special  Reference  to 
Conditions  Existing  in  the  City  of  New  York.     E.  R.  A. 
Seligman,  ed.     Putnam,  New  York,  1912. 
Commercialized  Prostitution  in  New  York  City.    G.  J.  Knee- 
land.     Century,  New  York,  1913. 


244  THE  SOCIAL  SURVEY 

NEW  YORK,  ROCKLAND  COUNTY.  Report  of  the  Survey  Made  in 
Rockland  County.  Committee  of  Fifty,  Orangetown,  N.  Y., 
1915. 

PHILADELPHIA,  PA.  Report  of  the  Vice  Commission.  American 
Social  Hygiene  Commission,  New  York,  1913. 

PITTSBURGH,  PA.  Report  and  Recommendations  of  Morals  Effi- 
ciency Commission.  The  Commission,  Pittsburgh,  1913. 

PORTLAND,  ME.  First  Report  of  the  Citizens'  Committee.  The 
Committee,  Portland,  1914. 

SAN  FRANCISCO,  CAL.  The  Red  Plague.  Commonwealth  Club 
of  California,  San  Francisco,  1911. 

SHREVEPORT,  LA.  Brief  and  Recommendations,  Shreveport  Vice 
Commission.  The  Commission,  Shreveport,  1915. 

ST.  Louis,  Mo.  Brief  and  Memorial  of  Committee  of  One  Hun- 
dred. The  Committee,  St.  Louis,  1914. 

SYRACUSE,  N.  Y.  Social  Evil  in  Syracuse.  Moral  Survey  Com- 
mittee, Syracuse,  1913. 

LEISURE  TIME  SURVEYS. 

CALIFORNIA.      Report   of    the    Recreation    Inquiry    Committee 

The  State,  Sacramento,  1914. 
CHARLOTTE,   N.   C.     Recreation   in   Charlotte.     I.   G.   Wiright. 

Parks  and  Playground  Association,  Charlotte,  1915. 
CINCINNATI,  OHIO.    Recreation  Survey  of  Cincinnati.    Juvenile 

Protective  Association,  Cincinnati,  1913. 
DETROIT,  MICH.    Detroit  Recreation  Survey.    Rowland  Haynes 

and  Mrs.  Rowland  Haynes.     Board  of  Commerce,  Detroit, 

1913. 
INDIANAPOLIS,  IND.     Indianapolis  Recreation   Survey.     F.  R. 

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R.  Knight.    Department  of  Recreation,  Russell  Sage  Foun- 
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Board  of  Public  Welfare,  Kansas  City,  1911-12. 
MILWAUKEE,    Wis.      Recreation    Survey.      Rowland    Haynes. 

Playground,  May,  1912. 


BIBLIOGRAPHY  245 

PATERSON,  N.  J.  Playgrounds  and  Organized  Public  Recrea- 
tions for  Paterson.  F.  R.  North.  Playground  Commis- 
sion, Paterson,  1914. 

PORTLAND,  ME.  Recreation  Survey.  F.  R.  North.  Board  of 
Trade,  Portland,  1913. 

PROVIDENCE,  R.  I.  Recreation  Survey  of  the  City  of  Provi- 
dence. F.  R.  North.  Playground  Association,  Providence, 
1912. 

SCRANTON,  PA.  Recreation  Survey  of  Scranton.  Lavera  Ber- 
lew.  Playground  Association,  Scranton,  1913.  Out  of 
print. 

SAN  FRANCISCO.  Public  Recreation.  F.  R.  North.  Common- 
wealth Club  of  California,  San  Francisco,  1913. 

SPRINGFIELD,  ILL.  Recreation  in  Springfield.  L.  F.  Hanmer 
and  C.  A.  Perry.  Department  of  Recreation,  Russell  Sage 
Foundation,  New  York,  1914. 

TOLEDO,  OHIO.  Play  Facilities  in  Toledo.  E.  B.  DeGroot.  Play- 
ground Association,  Toledo,  1914. 

LEISURE — GENERAL  LITERATURE. 

AMERICAN  ACADEMY  OF  POLITICAL  AND  SOCIAL  SCIENCE.    Public 

Recreation  Facilities.     Annals,  Vol.  XXXV,  No.  2,  March, 

1910. 

CLASS  ATHLETICS.    Russell  Sage  Foundation,  Rec.  95. 
COLLIER,  JOHN.     The  Lantern   Bearers:    A   Series   of  Essays 

Exploring   Some   Thoroughfares   of   the  People's   Leisure. 

The  Survey,  June,  1915,  to  July,  1916. 

These  articles  discuss  the  theatre  as  an  institution  of  com- 
munity life.  They  deal  especially  with  the  motion  picture, 
with  non-professional  and  community  drama,  the  folk  theatres 
of  various  lands,  sumptuary  regulation  and  censorship,  the 
status  of  commercialized  drama,  and  the  American  pageant. 
The  articles  are  as  follows: 

1.  Back  of  Our  Footlights:  The  Half -Forgotten  Social  Func- 
tion of  the  Drama.  (The  theatre  in  social  history.) 
June,  1915. 


246  THE  SOCIAL  SURVEY 

2.  Before  Our  Footlights:  The  School-Meaning  of  the  Motion 

Picture  Showmen.  (The  theatre,  and  especially  motion 
pictures,  considered  as  a  problem  of  regulation.)  July, 
1915. 

3.  Censorship  in  Action.      (A  description  of  American  legal 

censorships.)     August,  1915. 

4.  The  Learned  Judges  and  the  Films.     (The  legal  origin  of 

censorship  in  English  history;  the  present  legal  status 
of  censorship  in  America.  Analysis  of  the  Supreme 
Court's  decision  upholding  compulsory  censorship.)  Sep- 
tember, 1915. 

5.  Censorship;   And  The  National  Board.     (A  critical  exam- 

ination of  the  origin  and  results  of  the  National  Board 
of  Censorship  of  Motion  Pictures.)  October,  1915. 

6.  Anthony  Comstock — 'Liberal.      (An  interpretation  of  Com- 

stockism,  with  a  biography  of  Anthony  Comstock.  The 
psychology  of  impure-mindedness. )  November,  1915. 

7.  The  Theatre  of  Tomorrow.     (The  American  commercialized 

theatre;  the  North  Dakota  Little  Country  Theatre;  an- 
alysis of  the  theatre  as  a  phase  of  community  relation- 
ship.) January,  1916. 

8.  A  Film  Library.     (The  constructive  solution  of  the  problem 

of  motion  pictures.)     March,  1916. 

9.  For  a  New  Drama.     (Description  of  European  experiments 

in   the   organization   of  the   theatre.      German,    French, 

Danish,  Belgian,  Irish,  Emanuel  Reicher  in  America.) 
May,  1916. 

10.  The  Stage,  a  New  World.  (Analysis  of  American  Adven- 

tures toward  the  New  Theatre.  A  program  for  the 
future.)  June,  1916. 

11.  Caliban  by  the  Yellow  Sands.     (The  Shakespeare  Celebra- 

tion   renewed    against    the    background    of    American 
pageantry.)     July,  1916. 
GULICK,  LUTHER.    Exercise  and  Rest.  Russell  Sage  Foundation, 

Rec.  76. 

Folk  Dancing.    IUd.,  Rec.  118. 
HANMER,  LEE.    Athletics  in  Public  Schools.    Ibid.,  Rec.  72. 


BIBLIOGRAPHY  247 

HUBBABD,  H.  V.    The  Size  and  Distribution  of  Playgrounds  and 
Similar   Recreation    Facilities   in   American    Cities.     Pro- 
ceedings of  National  Conference  on  City  Planning,  1914. 
LANGDON.     Celebration  of  the  Fourth  by  Means  of  Pageantry. 

Russell  Sage  Foundation,  Rec.  114. 
LEE,  JOSEPH.    Play  in  Education.    New  York,  1915. 
MACKAYE,  PERCY.     The  Civic  Theatre  in  Relation  to  the  Re- 
demption of  Leisure.    Mitchell-Kennerley,  New  York,  1912. 
MEBO,  E.  B.     American  Playgrounds.     The  Dale  Association, 

Boston,  1909.     Out  of  print. 
PERRY,  CLARENCE.    The  Community  Used  School.    Russell  Sage 

Foundation,  Rec.  83. 

Evening  Recreation  Centers.    Ibid.,  Rec.  85. 
The  High  School  as  a  Social  Center!    Ibid.,  Rec.  138. 
How  the  Social  Center  Promotes  Reform  Movements.    Ibid., 

Rec.  131. 

How  to  Start  Social  Centers.    Ibid.,  Rec.  125. 
The  Real  Snag  in  Social  Center  Extension.    Ibid.,  Rec.  137. 
The  School  as  a  Factor  in  Neighborhood  Development.    Ibid., 

Rec.  142. 

Social  Center  Features  in  New  Elementary  School  Architec- 
ture.   Ibid.,  Rec.  120. 
Unused  Recreational  Resources  of  the  Average  Community. 

Ibid.,  Rec.  104. 

Wider  Use  of  the  School  Plant.    Ibid. 
WARD,  E.  J.     The  School  Center.     National  Municipal  League 

Series.    Appleton,  1915. 

Social  and  Civic  Centers.     American  Unitarian  Association, 
Bulletin  No.  23. 

MENTAL  HYGIENE. 

SPRINGFIELD,  ILL.  Care  of  Mental  Defectives,  the  Insane,  Alco- 
holics in  Springfield.  W.  L.  Treadway.  Department  of 
Surveys  and  Exhibits,  Russell  Sage  Foundation,  New  York, 
1914. 

WASHINGTON,  D.  C.  Mental  Defectives  in  the  District  of  Co- 
lumbia. E.  0.  Lundberg.  U.  S.  Children's  Bureau,  Wash- 
ington, 1915.  Publication  No.  13. 


248  THE  SOCIAL  SURVEY 

BARR,  M.  W.  Mental  Defectives — Their  History,  Treatment 
and  Training.  Philadelphia,  1904. 

DUGDALE,  R.  L.    The  Jukes.    New  York,  1910.    4th  ed. 

DARD,   H.   H.     Feeblemindedness.     MacMillan,   New   York, 
1914. 

U.  S.  CENSUS  BUREAU.  Insane  and  Feebleminded  in  Institu- 
tions. 1910. 

WILLIAMS,  EDWARD  HUNTINGTON.  The  Walled  City:  A  Story 
of  the  Criminal  Insane.  New  York,  1913. 

INDUSTRIAL  CONDITIONS. 

NEW  HAVEN,  CONN.  Industrial  Survey  of  a  New  Haven  Dis- 
trict. H.  P.  Fairchild.  Civic  Federation,  New  Haven,  1913. 

SPRINGFIELD,  ILL.  Industrial  Conditions  in  Springfield.  L.  C. 
Odencrantz  and  Z.  L.  Potter.  Department  of  Surveys  and 
Exhibits,  Russell  Sage  Foundation,  New  York,  1915. 

TOPEKA,  KAN.  Industrial  Conditions  in  Topeka.  Z.  L.  Potter. 
Ibid.,  1914. 

INDUSTRIAL  CONDITIONS — GENERAL  LITERATURE. 

ABBOTT,  EDITH.    Women  in  Industry.    New  York,  1910. 

ADAMS,  T.  S.,  and  SUMNER,  H.  L.  Labor  Problems.  New  York, 
1905. 

BOLEN,  G.  L.     Getting  a  Living.    New  York,  1903. 

BUTLER,  ELIZABETH  B.  Saleswomen  in  Mercantile  Stores.  Bal- 
timore, 1909.  New  York. 

DAWSON,  W.  HARBUTT.  Social  Insurance  in  Germany.  London, 
1912. 

FRANKEL,  LEE  K.,  and  DAWSON,  MILES  M.  Workingmen's  In- 
surance in  Europe.  New  York. 

HENDERSON,  C.  R.     Industrial  Insurance.    Chicago,  1911. 

KELLOR,  F.  A.  Out  of  Work:  A  Study  of  Employment  Agen- 
cies. New  York,  1904. 

MACLEAN,  A.  M.    Wage-Earning  Women.    New  York,  1910. 

REPORT  OF  MASSACHUSETTS  COMMISSION.  Minimum  Wage 
Boards.  Boston,  1912. 

MORE,  L.  B.    W&ge  Earners'  Budgets.    New  York,  1907. 

RYAN,  J.  A.    A  Living  Wage.    New  York,  1912. 


BIBLIOGRAPHY  249 

SCHLOSS,  D.  F.  Insurance  Against  Unemployment.  London, 
1909. 

SEAGEB,  H.  R.    Social  Insurance :  A  Program  of  Social  Reform. 

New  York,  1910. 
VAN  KLEEOK,  MARY.    Artificial  Flower  Makers.     Russell  Sage 

Foundation,  New  York.    Women  in  the  Bookbinding  Trade. 

Ibid. 

DELINQUENCY  AND  CORRECTIONS  SURVEYS. 

CHICAGO,  ILL.     On  the  Trail  of  the  Juvenile-Adult  Offender. 
A.  P.  Drucker.     Juvenile  Protective  Association,  Chicago, 
1912. 
Function  of  a  Farm  Colony.    Department  of  Public  Welfare, 

Chicago,  1914-15. 

Report  of  City  Council  Committee  on  Crime.  Municipal  Ref- 
erence Library,  Chicago,  1915. 

CINCINNATI,  OHIO.  Juvenile  Court  of  Hamilton  County.  R.  E. 
Miles.  Bureau  of  Municipal  Research,  Cincinnati,  1912. 

NEW  HAVEN,  CONN.  Study  of  the  Problem  of  Girl  Delinquency 
in  New  Haven.  M.  A.  Wiley.  Civic  Federation,  New 
Haven,  1915. 

NEW  ORLEANS,  LA.  Delinquent  and  Destitute  Boys  in  New  Or- 
leans. D.  S.  Hill.  Division  of  Educational  Research,  Pub- 
lic Schools,  New  Orleans,  1914. 

READING,  PA.  Report  on  Department  of  Police.  New  York 
Bureau  of  Municipal  Research.  Chamber  of  Commerce, 
Reading,  1913. 

PHILADELPHIA,  PA.  Unmarried  Girls  with  Sex  Experience. 
Bureau  for  Social  Research  of  The  Seybert  Institution, 
1916. 

SPRINGFIELD,  ILL.  Charities  of  Springfield.  F.  H.  McLean. 
American  Association  for  Organizing  Charities,  New  York, 
1915. 

Correctional  System  of  Springfield,  111.  Z.  L.  Potter.  De- 
partment of  Surveys  and  Exhibits,  Russell  Sage  Founda- 
tion, New  York,  1915. 

TOPEKA,  KAN.  Delinquency  and  Corrections.  Z.  L.  Potter. 
Ibid.,  1914. 


250  THE  SOCIAL  SURVEY 

DELINQUENCY  AND  CORRECTION — GENERAL  LITERATURE. 

ADDAMS,  JANE.  The  Spirit  of  Youth  and  the  City  Streets. 
New  York,  1914. 

ASCHAFFENBURG,  GUSTAV.     Crime  and  Its  Repression.     Boston, 

1913. 
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INDEX 


ADVICE, 

AIR, 

AMERICANIZATION, 

ANNUAL  REPORTS, 

ART, 

ASSIMILATIVE  ENDEAVOR,  31 

BELGIUM,  99 

"Boons,"  90 

BUDGET,  48, 212 

CASE  RECORDS,  24 

CHECK  AND  BALANCE,  12 

CITY  PLANNING,  89 

Civic : 

Pageant,  202 

Teaching,  201 

CLASSES,  3 

COMMUNITY  CENTRE,  129 

"Economics,"  149 

Health,  107 

CONSULTATION,  213 

CRIMINALS,  175 

Treatment  of,  180 

DEPENDENCY,  153 

Facts  Concerning,  153 

DIAGNOSIS,  SOCIAL,  23 

DISCRETION,  19 

EDUCATIONAL  AGENCIES,  142 

Private,  142 

Status  of,  143,  144 

EFFICIENCY,  25 

ENGINEER,  SOCIAL,  19 

ENGINEERING,  SANITARY,  78 

EXCHANGE  OF  EXPERIENCE, 

26,27 


PAGE  PAGE 

13      EXHIBITS,  21 
34     FACTS,  INTERPRETATION  OF,  194 

56      FINANCES,  45 

212      FOLK  ARTS.  128 

125      FOOD  SUPPLY,  37 
GOVERNMENTAL  FACTORS,     91 

GRAFT,  50 

HEALTH  SURVEY,  76 

Morbidity,  77 

Mortality,  76 

HOTELS,  85 

HOUSES,  ROOMING,  85 
HOUSING, 

Availability  of  Capital 

for,  96 

Conditions,  80 

Reform,  81 

Survey,  81, 85 

HUMAN  ACHIEVEMENT,  3 

Resources.  2 

Waste,  103 

INDUSTRIAL  BALANCE,  67 

Establishments,  104 

Migration,  67 

Progress,  91 

Safety,  69 

INDUSTRY,  58, 60 

Types  of,  58 
INSTITUTIONS: 

Administration,  157 

Budgets,  160 

Equipment,    162,  163,  164, 

165,  166 

Publicity,  161 


253 


254 


INDEX 


PAGE 

Resources  and  Income,  158 

Supervision  of,  155 

JUVENILE  DELINQUENCY,  176 

Prevention  of,  178 
Rehabilitation  of,     179, 180 

LABOR: 

Demand  for,  63 

Distribution  of,  72 

Organizations,  72 

Problems,  72 

Supply  of,  39 

LAND,  97 

Use,  97 

Speculation,  97 

LAWS: 

Building,  101 
Compulsory  Insurance,  69 
Enforcement  of,  102 
Function  of,  192 
New  York  and  Massa- 
chusetts, 105 
Positive  Task  of,  193 

LEGAL  INFORMATION,  211 

LEGISLATION  : 

Analysis  of,  189 

Scientific,  191 

Social,  190 

LEISURE,                    41,42,110 
Assets  and  Liabilities,  114 
Commercialized  Facili- 
ties for,  115 
Co-operative    Organiza- 
tions, 117 
Negative  Use  of,  110 
Philanthropic  or  Semi- 
philanthropic  institu- 
tions, 116 
Positive  Use  of,  110 


PAGE 

LIBRARY,  121 

LIGHT,  36 

LOCAL  GOVERNMENT,  44 

MASSES,  3 

MEDICINE,  PREVENTIVE,  78 

MILK  SUPPLY,  14 

MUCKRAKER,  1 
MUNICIPAL  : 

Administration,  88 

Loans,  49 

NATURAL  RESOURCES,  98 

NOISE,  39 

ODORS,  '  39 

OPPORTUNITY,  4 

ORGANIZATIONS,  10 

PEOPLE'S  INSTITUTE,  130 

POLITICAL  ACTIVITY,  14 

POPULATION,  28, 88 

Nomad,  64 

Non-Taxpaying,  47 

POVERTY,  149 

Causes,  152 

Relief,  151 

PRESS,  119 

PRISON  INSPECTION,  183 

PUBLIC  LECTURE  FORUM,     120 

RADICALS,  1 

RUSH  SEASONS,  64 

SCHOOLS,  131 

Administration,  139 

Buildings,  105 

Census,  132 

Efficiency,  140 

Exceptional  Child,  136 

Needs,  139 

Parochial,-  134 
Placement  of  Children,    137 

Private,  134 


INDEX 


255 


PAGE 

Sanitary  Condition,  105 

Service,  139 

Vocational  Training,  138 

SEGREGATION,  33 

SENSATIONALISM,  15 

SOCIAL  CONSCIOUSNESS,  20 

Ideals,  205 

Institutions,   Scrapping 

of,  205 

Liabilities,  174 

Mechanics,  184 

Program,  203 

Psychology,  206 

Service,  6 

SOCIALIZED  PLAN,  34 

STOCK  TAKING,  5 

STREET  LAYOUT,  51 

STATISTICAL  DATA,  209 

Interpretation,  185 

Method,  184 

Tabulation,                 186,  187 

STATISTICS,  UNOFFICIAL,  210 

Social,  184 

Vital,  22 


PAGE 

SUFFRAGE,  55 

SURVEY,  17 

Campaign  Material,  197 

Exhibits,  199 

Report,                        197,  198 

TAXING  POWERS,  46 

TRANSIT  FACILITIES,  99 

UNEMPLOYMENT,  68 

WASHINGTON  PLAN,  52 

WELFARE  AGENCIES,  145 
Classification,  146 
Efficiency  of,  147 
"Endorsement  Commit- 
tees," 169 
Problem  of  Endorse- 
ment, 173 

\VELFARE  WORK,  71 
"WHITE  WAY,"  41 
WORKERS,  18 
WORKERS  AND  COMPENSA- 
TION, 61 


F 

N0\ 


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